83_FR_56997 83 FR 56777 - Air Plan Approval; Michigan; Infrastructure SIP Requirements for the 2012 PM2.5

83 FR 56777 - Air Plan Approval; Michigan; Infrastructure SIP Requirements for the 2012 PM2.5

ENVIRONMENTAL PROTECTION AGENCY

Federal Register Volume 83, Issue 220 (November 14, 2018)

Page Range56777-56781
FR Document2018-24817

The Environmental Protection Agency (EPA) is proposing to approve elements of the State Implementation Plan (SIP) submission from Michigan regarding the infrastructure requirements of section 110 of the Clean Air Act (CAA) for the 2012 annual fine particulate matter (PM<INF>2.5</INF>) National Ambient Air Quality Standard (NAAQS or standard). The infrastructure requirements are designed to ensure that the structural components of each state's air quality management program are adequate to meet the state's responsibilities under the CAA. This action pertains specifically to infrastructure requirements concerning interstate transport provisions.

Federal Register, Volume 83 Issue 220 (Wednesday, November 14, 2018)
[Federal Register Volume 83, Number 220 (Wednesday, November 14, 2018)]
[Proposed Rules]
[Pages 56777-56781]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2018-24817]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R05-OAR-2017-0191; FRL-9986-30-Region 5]


Air Plan Approval; Michigan; Infrastructure SIP Requirements for 
the 2012 PM2.5 NAAQS; Multistate Transport

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: The Environmental Protection Agency (EPA) is proposing to 
approve elements of the State Implementation Plan (SIP) submission from 
Michigan regarding the infrastructure requirements of section 110 of 
the Clean Air Act (CAA) for the 2012 annual fine particulate matter 
(PM2.5) National Ambient Air Quality Standard (NAAQS or 
standard). The infrastructure requirements are designed to ensure that 
the structural components of each state's air quality management 
program are adequate to meet the state's responsibilities under the 
CAA. This action pertains specifically to infrastructure requirements 
concerning interstate transport provisions.

DATES: Comments must be received on or before December 14, 2018.

ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R05-
OAR-2017-0191 at http://www.regulations.gov, or via email to 
[email protected]. For comments submitted at Regulations.gov, 
follow the online instructions for submitting comments. Once submitted, 
comments cannot be edited or removed from Regulations.gov. For either 
manner of submission, EPA may publish any comment received to its 
public docket. Do not submit electronically any information you 
consider to be Confidential Business Information (CBI) or other 
information whose disclosure is restricted by statute. Multimedia 
submissions (audio, video, etc.) must be accompanied by a written 
comment. The written comment is considered the official comment and 
should include discussion of all points you wish to make. EPA will 
generally not consider comments or comment contents located outside of 
the primary submission (i.e. on the web, cloud, or other file sharing 
system). For additional submission methods, please contact the person 
identified in the For Further Information Contact section. For the full 
EPA public comment policy, information about CBI or multimedia 
submissions, and general guidance on making effective comments, please 
visit http://www2.epa.gov/dockets/commenting-epa-dockets.

FOR FURTHER INFORMATION CONTACT: Anthony Maietta, Environmental 
Protection Specialist, Control Strategies Section, Air Programs Branch 
(AR-18J), Environmental Protection Agency, Region 5, 77 West Jackson 
Boulevard, Chicago, Illinois 60604, (312) 353-8777, 
[email protected].

SUPPLEMENTARY INFORMATION: Throughout this document whenever ``we,'' 
``us,'' or ``our'' is used, we mean EPA. This supplementary information 
section is arranged as follows:

I. What is the background of this SIP submission?
II. What guidance and memoranda is EPA using to evaluate this SIP 
submission?
III. EPA's Review
IV. What action is EPA taking?
V. Statutory and Executive Order Reviews

I. What is the background of this SIP submission?

    This rulemaking addresses a submission from the Michigan Department 
of Environmental Quality dated March 23, 2017, which describes its 
infrastructure SIP for the 2012 annual PM2.5 NAAQS (78 FR 
3086). Specifically, this rulemaking addresses the portion of the 
submission dealing with interstate pollution transport under CAA 
Section 110(a)(2)(D)(i), otherwise known as the ``good neighbor'' 
provision. The requirement for states to make a SIP submission of this 
type arises from Section 110(a)(1) of the CAA. Pursuant to Section 
110(a)(1), states must submit ``within 3 years (or such shorter period 
as the Administrator may prescribe) after the promulgation of a 
national primary ambient air quality standard (or any revision 
thereof),'' a plan that provides for the ``implementation, maintenance, 
and enforcement'' of such NAAQS. The statute directly imposes on states 
the duty to make these SIP submissions, and the requirement to make the 
submissions is not conditioned upon EPA's taking any action other than 
promulgating a new or revised NAAQS. Section 110(a)(2) includes a list 
of specific elements that ``[e]ach such plan'' submission must address. 
EPA commonly refers to such state plans as ``infrastructure SIPs.''

II. What guidance and memoranda is EPA using to evaluate this SIP 
submission?

    EPA highlighted the statutory requirement to submit infrastructure 
SIPs within three years of promulgation of a new NAAQS in an October 2, 
2007, guidance document entitled ``Guidance on SIP Elements Required 
Under Sections 110(a)(1) and (2) for the 1997 8-hour Ozone and 
PM2.5 National Ambient Air Quality Standards'' (2007 
guidance). EPA has issued additional guidance documents and memoranda, 
including a September 13, 2013, guidance document titled ``Guidance on 
Infrastructure State Implementation Plan (SIP) Elements under Clean Air 
Act Sections 110(a)(1) and 110(a)(2)'' (2013 guidance).
    The most recent relevant document is a memorandum published on 
March 17, 2016, titled ``Information on the Interstate Transport ``Good 
Neighbor'' Provision for the 2012 Fine Particulate Matter National 
Ambient Air Quality Standards under Clean Air Act Section 
110(a)(2)(D)(i)(I)'' (2016 memorandum).

[[Page 56778]]

The 2016 memorandum describes EPA's consistent approach over the years 
to address interstate transport, and provides EPA's general review of 
relevant modeling data and air quality projections as they relate to 
the 2012 annual PM2.5 NAAQS. The 2016 memorandum provides 
information relevant to EPA Regional office review of the CAA section 
110 (a)(2)(D)(i)(I) ``good neighbor'' provision in infrastructure SIPs 
with respect to the 2012 annual PM2.5 NAAQS. Michigan's 
submittal and this rulemaking consider information provided in that 
memorandum.
    The 2016 memorandum provides states and EPA Regional offices with 
future year annual PM2.5 design values for monitors in the 
United States based on quality assured and certified ambient monitoring 
data and air quality modeling. The 2016 memorandum further describes 
how these projected potential design values can be used to help 
determine which monitors should be further evaluated to potentially 
address whether emissions from other states significantly contribute to 
nonattainment or interfere with maintenance of the 2012 annual 
PM2.5 NAAQS at those sites. The 2016 memorandum explains 
that, for purposes of addressing interstate transport for the 2012 
PM2.5 NAAQS, it may be appropriate to evaluate projected air 
quality in 2021, which is the attainment deadline for 2012 
PM2.5 NAAQS nonattainment areas classified as Moderate. 
Accordingly, because the available data includes 2017 and 2025 
projected average and maximum PM2.5 design values calculated 
through the CAMx photochemical model, the 2016 memorandum suggests 
approaches states might use to interpolate PM2.5 values at 
sites in 2021. The 2016 memorandum indicates that it may be reasonable 
to assume receptors projected to have average and/or maximum design 
values above the NAAQS in both 2017 and 2025 are also likely to be 
either nonattainment or maintenance receptors in 2021. Similarly, the 
2016 memorandum indicates that it may be reasonable to assume that 
receptors that are projected to attain the NAAQS in both 2017 and 2025 
are also likely to be attainment receptors in 2021. However, where a 
potential receptor is projected to be nonattainment or maintenance in 
2017, but projected to be attainment in 2025, the 2016 memorandum 
suggests that further analysis of the emissions and modeling may be 
needed to make a further judgement regarding the receptor status in 
2021.
    The 2016 memorandum indicates that for all but one monitor site in 
the eastern United States with at least one complete and valid 
PM2.5 design value for the annual average 2012 NAAQS in the 
2009-2013 period, the modeling data shows that monitors were expected 
to both attain and maintain the 2012 annual PM2.5 NAAQS in 
both 2017 and 2025. The modeling results provided in the 2016 
memorandum show that out of seven PM2.5 monitors located in 
Allegheny County, Pennsylvania, one monitor is expected to be above the 
2012 annual PM2.5 NAAQS in 2017. Further, that monitor the 
Liberty monitor (ID number 420030064), is projected to be above the 
NAAQS only under the model's maximum projected conditions (used in 
EPA's interstate transport framework to identify maintenance 
receptors), and is projected to both attain and maintain the NAAQS 
(along with all Allegheny County monitors) in 2025. The 2016 memorandum 
therefore indicates that under such a condition (where EPA's 
photochemical modeling indicates an area will maintain the 2012 annual 
PM2.5 NAAQS in 2025 but not attain in 2017) further analysis 
of the site should be performed to determine if the site may be a 
nonattainment or maintenance receptor in 2021 (the attainment deadline 
for moderate PM2.5 areas).
    The 2016 memorandum also indicates that based on modeling 
projections, there are 17 potential nonattainment or maintenance 
receptors in California, located in the San Joaquin Valley and South 
Coast nonattainment areas, and one potential receptor in Shoshone 
County, Idaho.
    The 2016 memorandum also indicates that for certain states with 
incomplete ambient monitoring data, additional information including 
the latest available data, should be analyzed to determine whether 
there are potential downwind air quality problems that may be impacted 
by transported emissions. These states include all or portions of 
Florida, Illinois, Idaho (outside of Shoshone County), Tennessee, and 
Kentucky. With the exception of four counties in Florida, the data 
quality problems have subsequently been resolved for these areas, and 
these areas now have current design values below the 2012 annual 
PM2.5 NAAQS and are expected to maintain the NAAQS due to 
downward emission trends for NOX and SO2.
    Michigan's submittal indicates that the state used data from the 
2016 memorandum in its analysis. EPA considered the analysis from 
Michigan, as well as additional analysis conducted by EPA, in its 
review of the Michigan submittal.

III. EPA's Review

    This rulemaking proposes action on the portion of Michigan's March 
23, 2017 SIP submission addressing the good neighbor provision 
requirements of CAA Section 110(a)(2)(D)(i). State plans must address 
four requirements of the good neighbor provisions (commonly referred to 
as ``prongs''), including:

--Prohibiting any source or other type of emissions activity in one 
state from contributing significantly to nonattainment of the NAAQS in 
another state (prong one);
--Prohibiting any source or other type of emissions activity in one 
state from interfering with maintenance of the NAAQS in another state 
(prong two);
--Prohibiting any source or other type of emissions activity in one 
state from interfering with measures required to prevent significant 
deterioration (PSD) of air quality in another state (prong three); and
--Protecting visibility in another state (prong four).

    This rulemaking is evaluating Michigan's March 23, 2017 submission, 
to determine whether Michigan's interstate transport provisions in its 
PM2.5 infrastructure SIP meet prongs one and two of the good 
neighbor requirements of the CAA. Prongs three and four will be 
evaluated in a separate rulemaking.
    EPA has developed a consistent framework for addressing the prong 
one and two interstate transport requirements with respect to the 
PM2.5 NAAQS in several previous Federal rulemakings. The 
four basic steps of that framework include: (1) Identifying downwind 
receptors that are expected to have problems attaining or maintaining 
the NAAQS; (2) identifying which upwind states contribute to these 
identified problems in amounts sufficient to warrant further review and 
analysis; (3) for states identified as contributing to downwind air 
quality problems, identifying upwind emissions reductions necessary to 
prevent an upwind state from significantly contributing to 
nonattainment or interfering with maintenance of the NAAQS downwind; 
and (4) for states that are found to have emissions that significantly 
contribute to nonattainment or interfere with maintenance of the NAAQS 
downwind, reducing the identified upwind emissions through adoption of 
permanent and enforceable measures. This framework was most recently

[[Page 56779]]

applied with respect to PM2.5 in the August 8, 2011 Cross-
State Air Pollution Rule (CSAPR) (76 FR 48208), designed to address 
both the 1997 and 2006 PM2.5 standards, as well as the 1997 
and 2008 ozone standards.
    Michigan's March 23, 2017 submission indicates that the 
implementation of the Michigan SIP for SO2 will result in 
SO2 reductions of over 11,000 tons per year through permit 
changes and Rule 336.1430 in the Michigan Administrative Code (Michigan 
R 336.1430). The submission indicates that rules R 336.1301 through R 
336.1374 in the Michigan SIP limit emissions of particulate matter 
throughout the state. The submission indicates that rules R 336.1401 
through R 336.1420 and R 336.1407 reduce SO2 emissions 
throughout the state, and that rule R 336.1430 reduces SO2 
emissions in the Detroit area. The submission indicates that rules R 
336.1801 through 336.1834 limit emissions of NO2 throughout 
the state. In addition, Michigan's submission indicates that power 
plant retirements across the state have resulted in reductions of 
approximately 9,800 tons of NOX and 30,990 tons of 
SO2 per year.
    Michigan's submittal also contains a technical analysis of its 
interstate transport of pollution relative to the 2012 annual 
PM2.5 NAAQS. The technical analysis studies Michigan 
sources' contribution to monitored PM2.5 air quality values 
in other states and whether Michigan would need to take further steps 
to decrease its emissions to (and therefore impacts on) those areas. 
Michigan's technical analysis considers CSAPR rule implementation, EPA 
guidance and memoranda, and other factors such as meteorology and 
state-wide emissions inventories. Michigan did not focus on potential 
contribution to areas EPA identified as not attaining the 2012 annual 
PM2.5 NAAQS based on monitor data in Alaska, California, 
Idaho, Nevada, or Hawaii.
    The distance between Michigan these areas, coupled with the 
prevailing wind directions, leads EPA to propose to find that Michigan 
will not contribute significantly to any of the potential receptors in 
those states.
    With respect to Illinois, EPA's source apportionment modeling in 
our original CSAPR analysis predicts that Michigan's emissions impact 
Illinois monitors. Michigan found, and our review confirmed, that 
despite the fact that Michigan emissions potentially contribute to 
increases in PM2.5 levels monitored in Illinois, all areas 
in Illinois are attaining the 2012 annual PM2.5 NAAQS based 
on 2015-2017 data.
    EPA considered available data from monitors in Illinois for its 
analysis of Michigan's submittal. As shown in Table 1, Illinois is now 
meeting the standard throughout the state.

Table 1--Illinois Annual PM2.5 Design Values for 2015-2017 Design Period
------------------------------------------------------------------------
                                                               2015-2017
                                                                Design
                Local site name                  Monitoring      value
                                                    site        ([mu]g/
                                                                 m\3\)
------------------------------------------------------------------------
Alsip.........................................   17-031-0001         9.5
Washington High School........................   17-031-0022         9.3
Mayfair Pump Station..........................   17-031-0052         9.1
Springfield Pump Station......................   17-031-0057        10.2
Com Ed........................................   17-031-0076         9.5
Schiller Park.................................   17-031-3103        10.5
Summit........................................   17-031-3301         9.7
Des Plaines...................................   17-031-4007         9.4
Northbrook....................................   17-031-4201         8.4
Cicero........................................   17-031-6005        10.0
Naperville....................................   17-043-4002         8.3
Elgin.........................................   17-089-0003         8.3
Aurora........................................   17-089-0007         8.3
Cary..........................................   17-111-0001     \+\ 8.2
Joliet........................................   17-197-1002         7.9
Braidwood.....................................   17-197-1011         7.9
Jerseyville...................................   17-083-0117     \+\ 8.8
Granite City..................................   17-119-1007         9.7
Alton.........................................   17-119-2009         8.8
Wood River....................................   17-119-3007         8.7
Houston.......................................   17-157-0001         8.5
East St. Louis................................   17-163-0010         9.8
Champaign.....................................   17-019-0006         7.9
Bondville.....................................   17-019-1001         7.8
Knight Prairie................................   17-065-0002         8.2
Normal........................................   17-113-2003         8.0
Decatur.......................................   17-115-0013         8.4
Peoria........................................   17-143-0037         8.2
Rock Island...................................   17-161-3002         8.1
Springfield...................................   17-167-0012         8.2
Rockford......................................   17-201-0013         8.3
------------------------------------------------------------------------
\+\ Data incomplete.

    Illinois' air quality trends reflect what is shown across the 
nation: A general downward trend in ambient air concentrations, 
including sites that Michigan analyzed in its submittal. During the 
last valid design period, only three Illinois counties reported 2008-
2010 annual PM2.5 design values above the NAAQS: Cook, 
Madison, and Saint Clair counties. In Cook County, the 2008-2010 annual 
design value was 13.0 micrograms per cubic meter ([micro]g/m\3\), and 
the annual mean values have trended downward. As shown in the table 
above, these areas are now meeting the NAAQS for the 2015 to 2017 
design period. Therefore, EPA expects that all counties in Illinois 
will attain and maintain the PM2.5 NAAQS without the need 
for additional PM2.5 reductions in Michigan, and for this 
reason, we propose to find that Michigan will not contribute 
significantly to nonattainment or maintenance problems in Illinois.
    Michigan found, and our review confirmed, that despite the fact 
that Michigan emissions potentially increase PM2.5 levels 
monitored in areas in other states, all of those areas are attaining 
the 2012 annual PM2.5 NAAQS based on 2014-2016 data. 
Michigan found, and our review confirmed, that despite the fact that 
Michigan emissions potentially increase PM2.5 levels 
monitored in Pennsylvania, all areas in Pennsylvania except for 
Allegheny County are attaining the 2012 annual PM2.5 NAAQS 
based on 2015-2017 data.
    The modeling information contained in EPA's 2016 memorandum shows 
that one monitor in Allegheny County, PA (the Liberty monitor, 
420030064) may have a maintenance issue in 2017, but is projected to 
both attain and maintain the NAAQS by 2025. A linear interpolation of 
the modeled design values to 2021 shows that the monitor is likely to 
both attain and maintain the standard by 2021. Emissions and air 
quality data trends help to corroborate this interpolation.
    Over the last decade, local and regional emissions reductions of 
primary PM2.5, sulfur dioxide (SO2), and nitrogen 
oxide (NOX), have led to large reductions in annual 
PM2.5 design values in Allegheny County, Pennsylvania. In 
2007, all of Allegheny County's PM2.5 monitors exceeded the 
level of the 2012 annual PM2.5 NAAQS (the 2005-2007 annual 
average design values ranged from 12.9-19.8 [micro]g/m\3\, as shown in 
Table 3). The 2015-2017 annual average PM2.5 design values 
now show that only one monitor (Liberty, at 13.0 [micro]g/m\3\) exceeds 
the health-based annual PM2.5 NAAQS of 12.0 [micro]g/m\3\.

                                                                       Table 3--PM2.5 Annual Design Values in [micro]g/m3
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
                           Monitor                             2005-2007   2006-2008   2007-2009   2008-2010   2009-2011   2010-2012   2011-2013   2012-2014   2013-2015   2014-2016   2015-2017
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Avalon......................................................  ..........  ..........  ..........      * 16.3      * 14.7        13.4        11.4        10.6        10.6      * 10.4      * 10.2
Lawrenceville...............................................        15.0        14.0        13.1        12.2        11.6        11.1        10.3        10.0         9.7         9.5         9.2
Liberty.....................................................        19.8        18.3        17.0        16.0        15.0        14.8        13.4        13.0        12.6        12.8        13.0

[[Page 56780]]

 
South Fayette...............................................        12.9      * 11.8        11.7        11.1        11.0        10.5         9.6         9.0         8.8       * 8.5       * 8.4
North Park..................................................      * 13.0      * 12.3      * 11.3      * 10.1         9.7         9.4         8.8         8.5         8.5       * 8.2       * 8.2
Harrison....................................................        15.0        14.2        13.7        13.0        12.4      * 11.7        10.6        10.0         9.8         9.8         9.8
North Braddock..............................................        16.2        15.2        14.3        13.3        12.7        12.5      * 11.7        11.4        11.2        11.0        10.8
Parkway East Near-Road......................................  ..........  ..........  ..........  ..........  ..........  ..........  ..........  ..........  ..........      * 10.6      * 10.6
Clairton....................................................        15.3        14.3        13.2        12.4      * 11.5      * 10.9       * 9.8         9.5         9.8       * 9.8       * 9.8
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
* Value does not contain a complete year's worth of data.

    The Liberty monitor is already close to attaining the NAAQS, and 
expected emissions reductions in the next three years will lead to 
additional reductions in measured PM2.5 concentrations. 
There are both local and regional components to the measured 
PM2.5 levels in Allegheny County and the greater Pittsburgh 
area. Previous CSAPR modeling showed that regional emissions from 
upwind states, particularly SO2 and NOX 
emissions, contribute to PM2.5 nonattainment at the Liberty 
monitor. In recent years, large SO2 and NOX 
reductions from power plants have occurred in Pennsylvania and states 
upwind from the Greater Pittsburgh region. Based on existing CSAPR 
budgets, Pennsylvania's energy sector emissions of SO2 will 
have decreased 166,000 tons between 2015-2017 as a result of CSAPR 
implementation. This is due to both the installation of emissions 
controls and retirements of electric generating units (EGUs).
    Between 2011 and 2016, 27.4 gigawatts of coal-fired EGUs have 
retired in Pennsylvania and the closest upwind states (West Virginia, 
Ohio, Kentucky, Indiana, Illinois, and Michigan) according to the 
Energy Information Administration's Preliminary Monthly Electric 
Generator Inventory, April 2017 (form EIA-860M, at https://www.eia.gov/electricity/data/eia860m/xls/april_generator2017.xlsx). In addition, 
between 2017 and 2021, an additional 8.8 gigawatts of coal-fired EGUs 
are expected to retire in the same upwind states. This includes large 
EGUs such as JM Stuart in Ohio (2,308 megawatts [MW]), Killen Station 
in Ohio (600 MW), WH Sammis in Ohio (720 MW), Michigan City in Indiana 
(469 MW), Will County in Illinois (510 MW), Baldwin Energy Complex in 
Illinois (576 MW), Paradise in Kentucky (1,230 MW), and Baily in 
Indiana (480 MW). These regional coal unit retirements will lead to 
further emissions reductions which will help ensure that Alleghany 
County monitors will not have nonattainment or maintenance issues by 
2021.
    In addition to regional emissions reductions and plant closures 
noted above, additional local reductions in both direct 
PM2.5 and SO2 emissions are also expected to 
occur and should also contribute to further declines in Allegheny 
County's PM2.5 monitor concentrations. For example, 
significant SO2 reductions will occur at U.S. Steel's 
integrated steel mill facilities in southern Allegheny County due to 
reductions required via federally-enforceable permits issued by 
Allegheny County to support its attainment plan submitted to meet 
requirements in CAA section 172(c) for the 1-hr SO2 NAAQS. 
Reductions are expected by October 2018 largely due to declining sulfur 
content in the Clairton Coke Work's coke oven gas (COG) due to upgraded 
controls. Because this COG is burned at U.S. Steel's Clairton Coke 
Works, Irvin Mill, and Edgar Thompson Steel Mill, these reductions in 
sulfur content should contribute to much lower PM2.5 
emissions from precursors in the immediate future after October 4, 2018 
as SO2 is a precursor to PM2.5. Additionally, 
improvement in SO2 removal efficiency due to an upgrade in 
the Bruce Mansfield Power Plant's flue gas desulfurization (FGD) units 
expected by October 2018 should also help reduce precursor emissions 
from neighboring Beaver County, Pennsylvania. The Allegheny County and 
Beaver County SO2 SIP submissions, which EPA is reviewing 
pursuant to CAA requirements, also discuss expected lower 
SO2 emissions in the Allegheny County area resulting from 
reduced sulfur content requirements in vehicle fuels, reductions in 
general emissions due to declining population in the Greater Pittsburgh 
region, and several shutdowns of significant emitters of SO2 
in Allegheny County.
    Projected power plant closures and additional emissions controls in 
Pennsylvania and upwind states will help further reduce both direct 
PM2.5 and PM2.5 precursors. Regional emission 
reductions will continue to occur from current on-the-books Federal and 
state regulations such as the Federal on-road and non-road vehicle 
programs, and various rules for major stationary emissions sources.
    In addition to regional emissions reductions and plant closures, 
additional local reductions to both direct PM2.5 and 
SO2 emissions are expected to occur and should also 
contribute to further declines in Allegheny County's PM2.5 
monitor concentrations. For example, significant SO2 
reductions have recently occurred at US Steel's integrated steel mill 
facilities in southern Allegheny County as part of a 1-hr 
SO2 NAAQS SIP.\1\ Reductions are largely due to declining 
sulfur content in the Clairton Coke Work's COG. Because this COG is 
burned at US Steel's Clairton Coke Works, Irvin Mill, and Edgar 
Thompson Steel Mill, these reductions in sulfur content should 
contribute to much lower PM2.5 precursor emissions in the 
immediate future. The Allegheny SO2 SIP also projects lower 
SO2 emissions resulting from vehicle fuel standards, 
reductions in general emissions due to declining population in the 
Greater Pittsburgh region and several shutdowns of significant sources 
of emissions in Allegheny County.
---------------------------------------------------------------------------

    \1\ http://www.achd.net/air/publichearing2017/SO2_2010_NAAQS_SIP_5-1-2017.pdf.
---------------------------------------------------------------------------

    EPA modeling projections, the recent downward trend in local and 
upwind emissions reductions, the expected continued downward trend in 
emissions between 2018 and 2021, and the downward trend in monitored 
PM2.5 concentrations all indicate that the Liberty monitor 
will attain and be able to maintain the 2012 annual PM2.5 
NAAQS by 2021.
    With respect to Florida, in the CSAPR modeling analysis for the 
1997 PM2.5 NAAQS, Florida did not have any potential 
nonattainment or maintenance receptors identified for the 1997 or 2006 
PM2.5 NAAQS. At this time, it is anticipated that this trend 
will continue, however, as there are ambient monitoring data gaps in 
the 2009-2013 data that could have been used to identify potential 
PM2.5 nonattainment and maintenance receptors for Miami/
Dade, Gilchrist, Broward and Alachua

[[Page 56781]]

counties in Florida, the modeling analysis of potential receptors was 
not complete for these counties. However, the most recent ambient data 
(2015-2017) for these counties indicates design values well below the 
level of the 2012 annual PM2.5 NAAQS. In addition, the 
highest value for these observed monitors is 8.0 [mu]g/m\3\ at the 
Hillsborough County monitor (12-057-3002), which is well below the 
NAAQS. This is also consistent with historical data: Complete and valid 
design values in the 2006-2008, 2007-2009 and/or 2008-2010 periods for 
these counties were all well below the 2012 annual PM2.5 
NAAQS. This is also consistent with historical data: Complete and valid 
design values in the 2006-2008 and/or 2007-2009 periods for these 
counties were well below the 2012 annual PM2.5 NAAQS. For 
these reasons, we find that none of the counties in Florida with 
monitoring gaps between 2009-2013 should be considered either 
nonattainment or maintenance receptors for the 2012 annual 
PM2.5 NAAQS. For these reasons, we propose to find that 
emissions from Michigan will not significantly contribute to 
nonattainment or interfere with maintenance of the 2012 annual 
PM2.5 NAAQS in Florida. We find further support in the fact 
that EPA's source apportionment modeling predicting state impacts on 
downwind monitors in 2012 under the base case scenario in our original 
CSAPR analysis, showing little impact from Michigan to any of Florida's 
counties.
    The conclusions of Michigan's analysis are consistent with EPA's 
expanded review of its March 23, 2017 submittal. All areas that 
Michigan sources potentially contribute to are expected to attain and 
maintain the 2012 annual PM2.5 NAAQS, and as demonstrated in 
its submittal, Michigan will not contribute to projected nonattainment 
or maintenance issues at any sites in 2021. Michigan's analysis shows 
that through permanent and enforceable measures currently contained in 
its SIP, and other emissions reductions occurring in Michigan and in 
other states, monitored PM2.5 air quality in all identified 
areas that Michigan sources may impact will continue to improve, and 
that no further measures are necessary to satisfy Michigan's 
responsibilities under CAA section 110(a)(2)(D)(i)(I). Therefore, EPA 
is proposing that prongs one and two of the interstate pollution 
transport element of Michigan's infrastructure SIP are approvable.

IV. What action is EPA taking?

    EPA is proposing to approve a portion of Michigan's March 23, 2017, 
submittal certifying that the current Michigan SIP is sufficient to 
meet the required infrastructure requirements under CAA section 
110(a)(2)(D)(i)(I), specifically prongs one and two, as set forth 
above. EPA is requesting comments on the proposed approval.

V. Statutory and Executive Order Reviews

    Under the CAA, the Administrator is required to approve a SIP 
submission that complies with the provisions of the CAA and applicable 
Federal regulations. 42 U.S.C. 7410(k); 40 CFR 52.02(a). Thus, in 
reviewing SIP submissions, EPA's role is to approve state choices, 
provided that they meet the criteria of the CAA. Accordingly, this 
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 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.);
     Is certified as not having a significant economic impact 
on a substantial number of small entities under the Regulatory 
Flexibility Act (5 U.S.C. 601 et seq.);
     Does not contain any unfunded mandate or significantly or 
uniquely affect small governments, as described in the Unfunded 
Mandates Reform Act of 1995 (Pub. L. 104-4);
     Does not have Federalism implications as specified in 
Executive Order 13132 (64 FR 43255, August 10, 1999);
     Is not an economically significant regulatory action based 
on health or safety risks subject to Executive Order 13045 (62 FR 
19885, April 23, 1997);
     Is not a significant regulatory action subject to 
Executive Order 13211 (66 FR 28355, May 22, 2001);
     Is not subject to requirements of Section 12(d) of the 
National Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272 
note) because application of those requirements would be inconsistent 
with the CAA; and
     Does not provide EPA with the discretionary authority to 
address, as appropriate, disproportionate human health or environmental 
effects, using practicable and legally permissible methods, under 
Executive Order 12898 (59 FR 7629, February 16, 1994).
    In addition, the SIP is not approved to apply on any Indian 
reservation land or in any other area where EPA or an Indian tribe has 
demonstrated that a tribe has jurisdiction. In those areas of Indian 
country, the rule does not have tribal implications and will not impose 
substantial direct costs on tribal governments or preempt tribal law as 
specified by Executive Order 13175 (65 FR 67249, November 9, 2000).

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Incorporation by 
reference, Intergovernmental relations, Particulate matter, Reporting 
and recordkeeping requirements.

    Dated: October 29, 2018.
Cathy Stepp,
Regional Administrator, Region 5.
[FR Doc. 2018-24817 Filed 11-13-18; 8:45 am]
BILLING CODE 6560-50-P



                       Federal Register / Vol. 83, No. 220 / Wednesday, November 14, 2018 / Proposed Rules                                            56777

        • Is not an economically significant                 requirements of section 110 of the Clean              III. EPA’s Review
     regulatory action based on health or                    Air Act (CAA) for the 2012 annual fine                IV. What action is EPA taking?
     safety risks subject to Executive Order                 particulate matter (PM2.5) National                   V. Statutory and Executive Order Reviews
     13045 (62 FR 19885, April 23, 1997);                    Ambient Air Quality Standard (NAAQS                   I. What is the background of this SIP
        • Is not a significant regulatory action             or standard). The infrastructure                      submission?
     subject to Executive Order 13211 (66 FR                 requirements are designed to ensure that
     28355, May 22, 2001);                                                                                            This rulemaking addresses a
                                                             the structural components of each
        • Is not subject to requirements of                                                                        submission from the Michigan
                                                             state’s air quality management program
     Section 12(d) of the National                                                                                 Department of Environmental Quality
                                                             are adequate to meet the state’s
     Technology Transfer and Advancement                     responsibilities under the CAA. This                  dated March 23, 2017, which describes
     Act of 1995 (15 U.S.C. 272 note) because                action pertains specifically to                       its infrastructure SIP for the 2012
     application of those requirements would                 infrastructure requirements concerning                annual PM2.5 NAAQS (78 FR 3086).
     be inconsistent with the CAA; and                       interstate transport provisions.                      Specifically, this rulemaking addresses
        • Does not provide EPA with the                                                                            the portion of the submission dealing
                                                             DATES: Comments must be received on
     discretionary authority to address, as                                                                        with interstate pollution transport under
                                                             or before December 14, 2018.
     appropriate, disproportionate human                                                                           CAA Section 110(a)(2)(D)(i), otherwise
                                                             ADDRESSES: Submit your comments,                      known as the ‘‘good neighbor’’
     health or environmental effects, using                  identified by Docket ID No. EPA–R05–
     practicable and legally permissible                                                                           provision. The requirement for states to
                                                             OAR–2017–0191 at http://                              make a SIP submission of this type
     methods, under Executive Order 12898                    www.regulations.gov, or via email to
     (59 FR 7629, February 16, 1994).                                                                              arises from Section 110(a)(1) of the
                                                             blakley.pamela@epa.gov. For comments                  CAA. Pursuant to Section 110(a)(1),
        In addition, the SIP is not approved                 submitted at Regulations.gov, follow the
     to apply on any Indian reservation land                                                                       states must submit ‘‘within 3 years (or
                                                             online instructions for submitting                    such shorter period as the Administrator
     or in any other area where EPA or an                    comments. Once submitted, comments
     Indian tribe has demonstrated that a                                                                          may prescribe) after the promulgation of
                                                             cannot be edited or removed from                      a national primary ambient air quality
     tribe has jurisdiction. In those areas of               Regulations.gov. For either manner of
     Indian country, the rule does not have                                                                        standard (or any revision thereof),’’ a
                                                             submission, EPA may publish any                       plan that provides for the
     tribal implications and will not impose                 comment received to its public docket.
     substantial direct costs on tribal                                                                            ‘‘implementation, maintenance, and
                                                             Do not submit electronically any                      enforcement’’ of such NAAQS. The
     governments or preempt tribal law as                    information you consider to be
     specified by Executive Order 13175 (65                                                                        statute directly imposes on states the
                                                             Confidential Business Information (CBI)               duty to make these SIP submissions,
     FR 67249, November 9, 2000).                            or other information whose disclosure is              and the requirement to make the
     List of Subjects in 40 CFR Part 52                      restricted by statute. Multimedia                     submissions is not conditioned upon
       Environmental protection, Air                         submissions (audio, video, etc.) must be              EPA’s taking any action other than
     pollution control, Carbon monoxide,                     accompanied by a written comment.                     promulgating a new or revised NAAQS.
     Incorporation by reference,                             The written comment is considered the                 Section 110(a)(2) includes a list of
     Intergovernmental relations, Lead,                      official comment and should include                   specific elements that ‘‘[e]ach such
     Nitrogen dioxide, Ozone, Particulate                    discussion of all points you wish to                  plan’’ submission must address. EPA
     matter, Reporting and recordkeeping                     make. EPA will generally not consider                 commonly refers to such state plans as
     requirements, Sulfur oxides, Volatile                   comments or comment contents located                  ‘‘infrastructure SIPs.’’
     organic compounds.                                      outside of the primary submission (i.e.
                                                             on the web, cloud, or other file sharing              II. What guidance and memoranda is
       Dated: October 30, 2018.                              system). For additional submission                    EPA using to evaluate this SIP
     Cathy Stepp,                                            methods, please contact the person                    submission?
     Regional Administrator, Region 5.                       identified in the FOR FURTHER                            EPA highlighted the statutory
     [FR Doc. 2018–24815 Filed 11–13–18; 8:45 am]            INFORMATION CONTACT section. For the                  requirement to submit infrastructure
     BILLING CODE 6560–50–P                                  full EPA public comment policy,                       SIPs within three years of promulgation
                                                             information about CBI or multimedia                   of a new NAAQS in an October 2, 2007,
                                                             submissions, and general guidance on                  guidance document entitled ‘‘Guidance
     ENVIRONMENTAL PROTECTION                                making effective comments, please visit               on SIP Elements Required Under
     AGENCY                                                  http://www2.epa.gov/dockets/                          Sections 110(a)(1) and (2) for the 1997
                                                             commenting-epa-dockets.                               8-hour Ozone and PM2.5 National
     40 CFR Part 52                                          FOR FURTHER INFORMATION CONTACT:                      Ambient Air Quality Standards’’ (2007
     [EPA–R05–OAR–2017–0191; FRL–9986–30–                    Anthony Maietta, Environmental                        guidance). EPA has issued additional
     Region 5]                                               Protection Specialist, Control Strategies             guidance documents and memoranda,
                                                             Section, Air Programs Branch (AR–18J),                including a September 13, 2013,
     Air Plan Approval; Michigan;                            Environmental Protection Agency,                      guidance document titled ‘‘Guidance on
     Infrastructure SIP Requirements for                     Region 5, 77 West Jackson Boulevard,                  Infrastructure State Implementation
     the 2012 PM2.5 NAAQS; Multistate                        Chicago, Illinois 60604, (312) 353–8777,              Plan (SIP) Elements under Clean Air Act
     Transport                                               maietta.anthony@epa.gov.                              Sections 110(a)(1) and 110(a)(2)’’ (2013
     AGENCY:  Environmental Protection                       SUPPLEMENTARY INFORMATION:                            guidance).
     Agency (EPA).                                           Throughout this document whenever                        The most recent relevant document is
     ACTION: Proposed rule.                                  ‘‘we,’’ ‘‘us,’’ or ‘‘our’’ is used, we mean           a memorandum published on March 17,
                                                             EPA. This supplementary information                   2016, titled ‘‘Information on the
     SUMMARY:   The Environmental Protection                 section is arranged as follows:                       Interstate Transport ‘‘Good Neighbor’’
     Agency (EPA) is proposing to approve                    I. What is the background of this SIP                 Provision for the 2012 Fine Particulate
     elements of the State Implementation                         submission?                                      Matter National Ambient Air Quality
     Plan (SIP) submission from Michigan                     II. What guidance and memoranda is EPA                Standards under Clean Air Act Section
     regarding the infrastructure                                 using to evaluate this SIP submission?           110(a)(2)(D)(i)(I)’’ (2016 memorandum).


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     56778             Federal Register / Vol. 83, No. 220 / Wednesday, November 14, 2018 / Proposed Rules

     The 2016 memorandum describes EPA’s                        The 2016 memorandum indicates that                 by EPA, in its review of the Michigan
     consistent approach over the years to                   for all but one monitor site in the                   submittal.
     address interstate transport, and                       eastern United States with at least one
                                                                                                                   III. EPA’s Review
     provides EPA’s general review of                        complete and valid PM2.5 design value
     relevant modeling data and air quality                  for the annual average 2012 NAAQS in                     This rulemaking proposes action on
     projections as they relate to the 2012                  the 2009–2013 period, the modeling                    the portion of Michigan’s March 23,
     annual PM2.5 NAAQS. The 2016                            data shows that monitors were expected                2017 SIP submission addressing the
     memorandum provides information                         to both attain and maintain the 2012                  good neighbor provision requirements
     relevant to EPA Regional office review                  annual PM2.5 NAAQS in both 2017 and                   of CAA Section 110(a)(2)(D)(i). State
     of the CAA section 110 (a)(2)(D)(i)(I)                  2025. The modeling results provided in                plans must address four requirements of
     ‘‘good neighbor’’ provision in                          the 2016 memorandum show that out of                  the good neighbor provisions
     infrastructure SIPs with respect to the                 seven PM2.5 monitors located in                       (commonly referred to as ‘‘prongs’’),
     2012 annual PM2.5 NAAQS. Michigan’s                     Allegheny County, Pennsylvania, one                   including:
     submittal and this rulemaking consider                  monitor is expected to be above the                   —Prohibiting any source or other type
     information provided in that                            2012 annual PM2.5 NAAQS in 2017.                         of emissions activity in one state from
     memorandum.                                             Further, that monitor the Liberty                        contributing significantly to
        The 2016 memorandum provides                         monitor (ID number 420030064), is                        nonattainment of the NAAQS in
     states and EPA Regional offices with                    projected to be above the NAAQS only                     another state (prong one);
     future year annual PM2.5 design values                  under the model’s maximum projected                   —Prohibiting any source or other type
     for monitors in the United States based                 conditions (used in EPA’s interstate                     of emissions activity in one state from
     on quality assured and certified ambient                transport framework to identify                          interfering with maintenance of the
     monitoring data and air quality                         maintenance receptors), and is projected                 NAAQS in another state (prong two);
     modeling. The 2016 memorandum                           to both attain and maintain the NAAQS                 —Prohibiting any source or other type
     further describes how these projected                   (along with all Allegheny County                         of emissions activity in one state from
     potential design values can be used to                  monitors) in 2025. The 2016                              interfering with measures required to
     help determine which monitors should                    memorandum therefore indicates that                      prevent significant deterioration
     be further evaluated to potentially                     under such a condition (where EPA’s                      (PSD) of air quality in another state
     address whether emissions from other                    photochemical modeling indicates an                      (prong three); and
     states significantly contribute to                      area will maintain the 2012 annual                    —Protecting visibility in another state
     nonattainment or interfere with                         PM2.5 NAAQS in 2025 but not attain in                    (prong four).
     maintenance of the 2012 annual PM2.5                    2017) further analysis of the site should                This rulemaking is evaluating
     NAAQS at those sites. The 2016                          be performed to determine if the site                 Michigan’s March 23, 2017 submission,
     memorandum explains that, for                           may be a nonattainment or maintenance                 to determine whether Michigan’s
     purposes of addressing interstate                       receptor in 2021 (the attainment                      interstate transport provisions in its
     transport for the 2012 PM2.5 NAAQS, it                  deadline for moderate PM2.5 areas).                   PM2.5 infrastructure SIP meet prongs
     may be appropriate to evaluate                             The 2016 memorandum also indicates                 one and two of the good neighbor
     projected air quality in 2021, which is                 that based on modeling projections,                   requirements of the CAA. Prongs three
     the attainment deadline for 2012 PM2.5                  there are 17 potential nonattainment or               and four will be evaluated in a separate
     NAAQS nonattainment areas classified                    maintenance receptors in California,                  rulemaking.
     as Moderate. Accordingly, because the                   located in the San Joaquin Valley and                    EPA has developed a consistent
     available data includes 2017 and 2025                   South Coast nonattainment areas, and                  framework for addressing the prong one
     projected average and maximum PM2.5                     one potential receptor in Shoshone                    and two interstate transport
     design values calculated through the                    County, Idaho.                                        requirements with respect to the PM2.5
     CAMx photochemical model, the 2016                         The 2016 memorandum also indicates                 NAAQS in several previous Federal
     memorandum suggests approaches                          that for certain states with incomplete               rulemakings. The four basic steps of that
     states might use to interpolate PM2.5                   ambient monitoring data, additional                   framework include: (1) Identifying
     values at sites in 2021. The 2016                       information including the latest                      downwind receptors that are expected
     memorandum indicates that it may be                     available data, should be analyzed to                 to have problems attaining or
     reasonable to assume receptors                          determine whether there are potential                 maintaining the NAAQS; (2) identifying
     projected to have average and/or                        downwind air quality problems that                    which upwind states contribute to these
     maximum design values above the                         may be impacted by transported                        identified problems in amounts
     NAAQS in both 2017 and 2025 are also                    emissions. These states include all or                sufficient to warrant further review and
     likely to be either nonattainment or                    portions of Florida, Illinois, Idaho                  analysis; (3) for states identified as
     maintenance receptors in 2021.                          (outside of Shoshone County),                         contributing to downwind air quality
     Similarly, the 2016 memorandum                          Tennessee, and Kentucky. With the                     problems, identifying upwind emissions
     indicates that it may be reasonable to                  exception of four counties in Florida,                reductions necessary to prevent an
     assume that receptors that are projected                the data quality problems have                        upwind state from significantly
     to attain the NAAQS in both 2017 and                    subsequently been resolved for these                  contributing to nonattainment or
     2025 are also likely to be attainment                   areas, and these areas now have current               interfering with maintenance of the
     receptors in 2021. However, where a                     design values below the 2012 annual                   NAAQS downwind; and (4) for states
     potential receptor is projected to be                   PM2.5 NAAQS and are expected to                       that are found to have emissions that
     nonattainment or maintenance in 2017,                   maintain the NAAQS due to downward                    significantly contribute to
     but projected to be attainment in 2025,                 emission trends for NOX and SO2.                      nonattainment or interfere with
     the 2016 memorandum suggests that                          Michigan’s submittal indicates that                maintenance of the NAAQS downwind,
     further analysis of the emissions and                   the state used data from the 2016                     reducing the identified upwind
     modeling may be needed to make a                        memorandum in its analysis. EPA                       emissions through adoption of
     further judgement regarding the receptor                considered the analysis from Michigan,                permanent and enforceable measures.
     status in 2021.                                         as well as additional analysis conducted              This framework was most recently


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                               Federal Register / Vol. 83, No. 220 / Wednesday, November 14, 2018 / Proposed Rules                                                                              56779

     applied with respect to PM2.5 in the                                                monitors. Michigan found, and our                              the NAAQS: Cook, Madison, and Saint
     August 8, 2011 Cross-State Air Pollution                                            review confirmed, that despite the fact                        Clair counties. In Cook County, the
     Rule (CSAPR) (76 FR 48208), designed                                                that Michigan emissions potentially                            2008–2010 annual design value was
     to address both the 1997 and 2006 PM2.5                                             contribute to increases in PM2.5 levels                        13.0 micrograms per cubic meter (mg/
     standards, as well as the 1997 and 2008                                             monitored in Illinois, all areas in Illinois                   m3), and the annual mean values have
     ozone standards.                                                                    are attaining the 2012 annual PM2.5                            trended downward. As shown in the
        Michigan’s March 23, 2017                                                        NAAQS based on 2015–2017 data.                                 table above, these areas are now meeting
     submission indicates that the                                                         EPA considered available data from                           the NAAQS for the 2015 to 2017 design
     implementation of the Michigan SIP for                                              monitors in Illinois for its analysis of                       period. Therefore, EPA expects that all
     SO2 will result in SO2 reductions of over                                           Michigan’s submittal. As shown in                              counties in Illinois will attain and
     11,000 tons per year through permit                                                 Table 1, Illinois is now meeting the                           maintain the PM2.5 NAAQS without the
     changes and Rule 336.1430 in the                                                    standard throughout the state.                                 need for additional PM2.5 reductions in
     Michigan Administrative Code                                                                                                                       Michigan, and for this reason, we
     (Michigan R 336.1430). The submission                                                    TABLE 1—ILLINOIS ANNUAL PM2.5 DE-                         propose to find that Michigan will not
     indicates that rules R 336.1301 through                                                   SIGN VALUES FOR 2015–2017 DE-                            contribute significantly to
     R 336.1374 in the Michigan SIP limit                                                      SIGN PERIOD                                              nonattainment or maintenance problems
     emissions of particulate matter                                                                                                                    in Illinois.
     throughout the state. The submission                                                                                                2015–2017
     indicates that rules R 336.1401 through                                                                         Monitoring            Design          Michigan found, and our review
                                                                                          Local site name                                               confirmed, that despite the fact that
     R 336.1420 and R 336.1407 reduce SO2                                                                              site                value
     emissions throughout the state, and that                                                                                             (μg/m3)       Michigan emissions potentially increase
     rule R 336.1430 reduces SO2 emissions                                                                                                              PM2.5 levels monitored in areas in other
                                                                                         Alsip ..................   17–031–0001                  9.5
     in the Detroit area. The submission                                                                                                                states, all of those areas are attaining the
                                                                                         Washington
     indicates that rules R 336.1801 through                                               High School ...          17–031–0022                  9.3    2012 annual PM2.5 NAAQS based on
     336.1834 limit emissions of NO2                                                     Mayfair Pump                                                   2014–2016 data. Michigan found, and
     throughout the state. In addition,                                                    Station ...........      17–031–0052                  9.1    our review confirmed, that despite the
     Michigan’s submission indicates that                                                Springfield                                                    fact that Michigan emissions potentially
     power plant retirements across the state                                              Pump Station             17–031–0057                10.2     increase PM2.5 levels monitored in
     have resulted in reductions of                                                      Com Ed .............       17–031–0076                  9.5    Pennsylvania, all areas in Pennsylvania
                                                                                         Schiller Park .....        17–031–3103                10.5     except for Allegheny County are
     approximately 9,800 tons of NOX and                                                 Summit ..............      17–031–3301                  9.7
     30,990 tons of SO2 per year.                                                                                                                       attaining the 2012 annual PM2.5 NAAQS
                                                                                         Des Plaines ......         17–031–4007                  9.4
        Michigan’s submittal also contains a                                             Northbrook ........        17–031–4201                  8.4    based on 2015–2017 data.
     technical analysis of its interstate                                                Cicero ...............     17–031–6005                10.0        The modeling information contained
     transport of pollution relative to the                                              Naperville ..........      17–043–4002                  8.3    in EPA’s 2016 memorandum shows that
     2012 annual PM2.5 NAAQS. The                                                        Elgin ..................   17–089–0003                  8.3    one monitor in Allegheny County, PA
     technical analysis studies Michigan                                                 Aurora ...............     17–089–0007                  8.3
                                                                                         Cary ..................    17–111–0001                + 8.2    (the Liberty monitor, 420030064) may
     sources’ contribution to monitored                                                                                                                 have a maintenance issue in 2017, but
     PM2.5 air quality values in other states                                            Joliet .................   17–197–1002                  7.9
                                                                                         Braidwood .........        17–197–1011                  7.9    is projected to both attain and maintain
     and whether Michigan would need to                                                  Jerseyville .........      17–083–0117                + 8.8    the NAAQS by 2025. A linear
     take further steps to decrease its                                                  Granite City .......       17–119–1007                  9.7    interpolation of the modeled design
     emissions to (and therefore impacts on)                                             Alton ..................   17–119–2009                  8.8    values to 2021 shows that the monitor
     those areas. Michigan’s technical                                                   Wood River .......         17–119–3007                  8.7    is likely to both attain and maintain the
     analysis considers CSAPR rule                                                       Houston ............       17–157–0001                  8.5
                                                                                                                                                        standard by 2021. Emissions and air
     implementation, EPA guidance and                                                    East St. Louis ...         17–163–0010                  9.8
                                                                                         Champaign .......          17–019–0006                  7.9    quality data trends help to corroborate
     memoranda, and other factors such as                                                                                                               this interpolation.
     meteorology and state-wide emissions                                                Bondville ...........      17–019–1001                  7.8
                                                                                         Knight Prairie ....        17–065–0002                  8.2       Over the last decade, local and
     inventories. Michigan did not focus on                                              Normal ..............      17–113–2003                  8.0
     potential contribution to areas EPA                                                                                                                regional emissions reductions of
                                                                                         Decatur .............      17–115–0013                  8.4    primary PM2.5, sulfur dioxide (SO2), and
     identified as not attaining the 2012                                                Peoria ...............     17–143–0037                  8.2
     annual PM2.5 NAAQS based on monitor                                                 Rock Island .......        17–161–3002                  8.1    nitrogen oxide (NOX), have led to large
     data in Alaska, California, Idaho,                                                  Springfield .........      17–167–0012                  8.2    reductions in annual PM2.5 design
     Nevada, or Hawaii.                                                                  Rockford ...........       17–201–0013                  8.3    values in Allegheny County,
        The distance between Michigan these                                                   + Data
                                                                                                                                                        Pennsylvania. In 2007, all of Allegheny
                                                                                                       incomplete.                                      County’s PM2.5 monitors exceeded the
     areas, coupled with the prevailing wind
     directions, leads EPA to propose to find                                               Illinois’ air quality trends reflect what                   level of the 2012 annual PM2.5 NAAQS
     that Michigan will not contribute                                                   is shown across the nation: A general                          (the 2005–2007 annual average design
     significantly to any of the potential                                               downward trend in ambient air                                  values ranged from 12.9–19.8 mg/m3, as
     receptors in those states.                                                          concentrations, including sites that                           shown in Table 3). The 2015–2017
        With respect to Illinois, EPA’s source                                           Michigan analyzed in its submittal.                            annual average PM2.5 design values now
     apportionment modeling in our original                                              During the last valid design period, only                      show that only one monitor (Liberty, at
     CSAPR analysis predicts that                                                        three Illinois counties reported 2008–                         13.0 mg/m3) exceeds the health-based
     Michigan’s emissions impact Illinois                                                2010 annual PM2.5 design values above                          annual PM2.5 NAAQS of 12.0 mg/m3.
                                                                            TABLE 3—PM2.5 ANNUAL DESIGN VALUES IN μg/m3
          Monitor              2005–2007            2006–2008            2007–2009             2008–2010     2009–2011        2010–2012     2011–2013    2012–2014    2013–2015   2014–2016    2015–2017

     Avalon .............      ..................   ..................   ..................        * 16.3           * 14.7           13.4        11.4          10.6        10.6       * 10.4       * 10.2
     Lawrenceville ...                    15.0                 14.0                 13.1             12.2             11.6           11.1        10.3          10.0         9.7          9.5          9.2
     Liberty ..............               19.8                 18.3                 17.0             16.0             15.0           14.8        13.4          13.0        12.6         12.8         13.0




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     56780                    Federal Register / Vol. 83, No. 220 / Wednesday, November 14, 2018 / Proposed Rules

                                                             TABLE 3—PM2.5 ANNUAL DESIGN VALUES IN μg/m3—Continued
          Monitor             2005–2007            2006–2008            2007–2009            2008–2010            2009–2011             2010–2012            2011–2013             2012–2014            2013–2015            2014–2016     2015–2017

     South Fayette ..                    12.9               * 11.8                 11.7                 11.1                11.0                  10.5                   9.6                  9.0                   8.8           * 8.5         * 8.4
     North Park .......                * 13.0               * 12.3               * 11.3               * 10.1                 9.7                   9.4                   8.8                  8.5                   8.5           * 8.2         * 8.2
     Harrison ...........                15.0                 14.2                 13.7                 13.0                12.4                * 11.7                  10.6                 10.0                   9.8             9.8           9.8
     North Braddock                      16.2                 15.2                 14.3                 13.3                12.7                  12.5                * 11.7                 11.4                  11.2           11.0          10.8
     Parkway East
       Near-Road ...          ..................   ..................   ..................   ..................   ..................    ..................   ..................    ..................   ..................       * 10.6        * 10.6
     Clairton ............               15.3                 14.3                 13.2                 12.4               * 11.5                * 10.9                 * 9.8                   9.5                  9.8           * 9.8         * 9.8
       * Value does not contain a complete year’s worth of data.


        The Liberty monitor is already close                                               In addition to regional emissions                                                      and non-road vehicle programs, and
     to attaining the NAAQS, and expected                                               reductions and plant closures noted                                                       various rules for major stationary
     emissions reductions in the next three                                             above, additional local reductions in                                                     emissions sources.
     years will lead to additional reductions                                           both direct PM2.5 and SO2 emissions are                                                      In addition to regional emissions
     in measured PM2.5 concentrations.                                                  also expected to occur and should also                                                    reductions and plant closures,
     There are both local and regional                                                  contribute to further declines in                                                         additional local reductions to both
     components to the measured PM2.5                                                   Allegheny County’s PM2.5 monitor                                                          direct PM2.5 and SO2 emissions are
     levels in Allegheny County and the                                                 concentrations. For example, significant                                                  expected to occur and should also
     greater Pittsburgh area. Previous CSAPR                                            SO2 reductions will occur at U.S. Steel’s                                                 contribute to further declines in
     modeling showed that regional                                                      integrated steel mill facilities in                                                       Allegheny County’s PM2.5 monitor
     emissions from upwind states,                                                      southern Allegheny County due to                                                          concentrations. For example, significant
     particularly SO2 and NOX emissions,                                                reductions required via federally-                                                        SO2 reductions have recently occurred
     contribute to PM2.5 nonattainment at the                                           enforceable permits issued by Allegheny                                                   at US Steel’s integrated steel mill
                                                                                        County to support its attainment plan                                                     facilities in southern Allegheny County
     Liberty monitor. In recent years, large
                                                                                        submitted to meet requirements in CAA                                                     as part of a 1-hr SO2 NAAQS SIP.1
     SO2 and NOX reductions from power
                                                                                        section 172(c) for the 1-hr SO2 NAAQS.                                                    Reductions are largely due to declining
     plants have occurred in Pennsylvania
                                                                                        Reductions are expected by October                                                        sulfur content in the Clairton Coke
     and states upwind from the Greater                                                                                                                                           Work’s COG. Because this COG is
     Pittsburgh region. Based on existing                                               2018 largely due to declining sulfur
                                                                                        content in the Clairton Coke Work’s                                                       burned at US Steel’s Clairton Coke
     CSAPR budgets, Pennsylvania’s energy                                                                                                                                         Works, Irvin Mill, and Edgar Thompson
     sector emissions of SO2 will have                                                  coke oven gas (COG) due to upgraded
                                                                                        controls. Because this COG is burned at                                                   Steel Mill, these reductions in sulfur
     decreased 166,000 tons between 2015–                                                                                                                                         content should contribute to much
     2017 as a result of CSAPR                                                          U.S. Steel’s Clairton Coke Works, Irvin
                                                                                        Mill, and Edgar Thompson Steel Mill,                                                      lower PM2.5 precursor emissions in the
     implementation. This is due to both the                                                                                                                                      immediate future. The Allegheny SO2
     installation of emissions controls and                                             these reductions in sulfur content
                                                                                        should contribute to much lower PM2.5                                                     SIP also projects lower SO2 emissions
     retirements of electric generating units                                                                                                                                     resulting from vehicle fuel standards,
                                                                                        emissions from precursors in the
     (EGUs).                                                                                                                                                                      reductions in general emissions due to
                                                                                        immediate future after October 4, 2018
        Between 2011 and 2016, 27.4                                                     as SO2 is a precursor to PM2.5.                                                           declining population in the Greater
     gigawatts of coal-fired EGUs have                                                  Additionally, improvement in SO2                                                          Pittsburgh region and several
     retired in Pennsylvania and the closest                                            removal efficiency due to an upgrade in                                                   shutdowns of significant sources of
     upwind states (West Virginia, Ohio,                                                the Bruce Mansfield Power Plant’s flue                                                    emissions in Allegheny County.
     Kentucky, Indiana, Illinois, and                                                   gas desulfurization (FGD) units                                                              EPA modeling projections, the recent
     Michigan) according to the Energy                                                                                                                                            downward trend in local and upwind
                                                                                        expected by October 2018 should also
     Information Administration’s                                                                                                                                                 emissions reductions, the expected
                                                                                        help reduce precursor emissions from
     Preliminary Monthly Electric Generator                                                                                                                                       continued downward trend in emissions
                                                                                        neighboring Beaver County,
     Inventory, April 2017 (form EIA–860M,                                                                                                                                        between 2018 and 2021, and the
                                                                                        Pennsylvania. The Allegheny County
     at https://www.eia.gov/electricity/data/                                                                                                                                     downward trend in monitored PM2.5
                                                                                        and Beaver County SO2 SIP
     eia860m/xls/april_generator2017.xlsx).                                                                                                                                       concentrations all indicate that the
                                                                                        submissions, which EPA is reviewing
     In addition, between 2017 and 2021, an                                                                                                                                       Liberty monitor will attain and be able
                                                                                        pursuant to CAA requirements, also
     additional 8.8 gigawatts of coal-fired                                                                                                                                       to maintain the 2012 annual PM2.5
                                                                                        discuss expected lower SO2 emissions
                                                                                                                                                                                  NAAQS by 2021.
     EGUs are expected to retire in the same                                            in the Allegheny County area resulting                                                       With respect to Florida, in the CSAPR
     upwind states. This includes large EGUs                                            from reduced sulfur content                                                               modeling analysis for the 1997 PM2.5
     such as JM Stuart in Ohio (2,308                                                   requirements in vehicle fuels,                                                            NAAQS, Florida did not have any
     megawatts [MW]), Killen Station in                                                 reductions in general emissions due to                                                    potential nonattainment or maintenance
     Ohio (600 MW), WH Sammis in Ohio                                                   declining population in the Greater                                                       receptors identified for the 1997 or 2006
     (720 MW), Michigan City in Indiana                                                 Pittsburgh region, and several                                                            PM2.5 NAAQS. At this time, it is
     (469 MW), Will County in Illinois (510                                             shutdowns of significant emitters of SO2                                                  anticipated that this trend will continue,
     MW), Baldwin Energy Complex in                                                     in Allegheny County.                                                                      however, as there are ambient
     Illinois (576 MW), Paradise in Kentucky                                              Projected power plant closures and                                                      monitoring data gaps in the 2009–2013
     (1,230 MW), and Baily in Indiana (480                                              additional emissions controls in                                                          data that could have been used to
     MW). These regional coal unit                                                      Pennsylvania and upwind states will                                                       identify potential PM2.5 nonattainment
     retirements will lead to further                                                   help further reduce both direct PM2.5                                                     and maintenance receptors for Miami/
     emissions reductions which will help                                               and PM2.5 precursors. Regional emission                                                   Dade, Gilchrist, Broward and Alachua
     ensure that Alleghany County monitors                                              reductions will continue to occur from
     will not have nonattainment or                                                     current on-the-books Federal and state                                                     1 http://www.achd.net/air/publichearing2017/

     maintenance issues by 2021.                                                        regulations such as the Federal on-road                                                   SO2_2010_NAAQS_SIP_5-1-2017.pdf.



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                       Federal Register / Vol. 83, No. 220 / Wednesday, November 14, 2018 / Proposed Rules                                                56781

     counties in Florida, the modeling                       IV. What action is EPA taking?                           • Does not provide EPA with the
     analysis of potential receptors was not                    EPA is proposing to approve a portion              discretionary authority to address, as
     complete for these counties. However,                   of Michigan’s March 23, 2017, submittal               appropriate, disproportionate human
     the most recent ambient data (2015–                     certifying that the current Michigan SIP              health or environmental effects, using
     2017) for these counties indicates design               is sufficient to meet the required                    practicable and legally permissible
     values well below the level of the 2012                 infrastructure requirements under CAA                 methods, under Executive Order 12898
     annual PM2.5 NAAQS. In addition, the                    section 110(a)(2)(D)(i)(I), specifically              (59 FR 7629, February 16, 1994).
     highest value for these observed                        prongs one and two, as set forth above.                  In addition, the SIP is not approved
     monitors is 8.0 mg/m3 at the                            EPA is requesting comments on the                     to apply on any Indian reservation land
     Hillsborough County monitor (12–057–                    proposed approval.                                    or in any other area where EPA or an
     3002), which is well below the NAAQS.                                                                         Indian tribe has demonstrated that a
     This is also consistent with historical                 V. Statutory and Executive Order                      tribe has jurisdiction. In those areas of
                                                             Reviews                                               Indian country, the rule does not have
     data: Complete and valid design values
     in the 2006–2008, 2007–2009 and/or                         Under the CAA, the Administrator is                tribal implications and will not impose
                                                             required to approve a SIP submission                  substantial direct costs on tribal
     2008–2010 periods for these counties
                                                             that complies with the provisions of the              governments or preempt tribal law as
     were all well below the 2012 annual
                                                             CAA and applicable Federal regulations.               specified by Executive Order 13175 (65
     PM2.5 NAAQS. This is also consistent
                                                             42 U.S.C. 7410(k); 40 CFR 52.02(a).                   FR 67249, November 9, 2000).
     with historical data: Complete and valid
     design values in the 2006–2008 and/or                   Thus, in reviewing SIP submissions,                   List of Subjects in 40 CFR Part 52
     2007–2009 periods for these counties                    EPA’s role is to approve state choices,
                                                             provided that they meet the criteria of                 Environmental protection, Air
     were well below the 2012 annual PM2.5                                                                         pollution control, Incorporation by
     NAAQS. For these reasons, we find that                  the CAA. Accordingly, this action
                                                             merely approves state law as meeting                  reference, Intergovernmental relations,
     none of the counties in Florida with                                                                          Particulate matter, Reporting and
     monitoring gaps between 2009–2013                       Federal requirements and does not
                                                             impose additional requirements beyond                 recordkeeping requirements.
     should be considered either                                                                                     Dated: October 29, 2018.
                                                             those imposed by state law. For that
     nonattainment or maintenance receptors
                                                             reason, this action:                                  Cathy Stepp,
     for the 2012 annual PM2.5 NAAQS. For
                                                                • Is not a significant regulatory action           Regional Administrator, Region 5.
     these reasons, we propose to find that
                                                             subject to review by the Office of                    [FR Doc. 2018–24817 Filed 11–13–18; 8:45 am]
     emissions from Michigan will not                        Management and Budget under                           BILLING CODE 6560–50–P
     significantly contribute to                             Executive Orders 12866 (58 FR 51735,
     nonattainment or interfere with                         October 4, 1993) and 13563 (76 FR 3821,
     maintenance of the 2012 annual PM2.5                    January 21, 2011);                                    ENVIRONMENTAL PROTECTION
     NAAQS in Florida. We find further                          • Is not an Executive Order 13771 (82              AGENCY
     support in the fact that EPA’s source                   FR 9339, February 2, 2017) regulatory
     apportionment modeling predicting                       action because SIP approvals are                      40 CFR Parts 52 and 81
     state impacts on downwind monitors in                   exempted under Executive Order 12866.                 [EPA–HQ–OAR–2018–0226; FRL–9986–44–
     2012 under the base case scenario in our                   • Does not impose an information                   OAR]
     original CSAPR analysis, showing little                 collection burden under the provisions
     impact from Michigan to any of                          of the Paperwork Reduction Act (44                    RIN 2060–AT97
     Florida’s counties.                                     U.S.C. 3501 et seq.);
                                                                                                                   Determinations of Attainment by the
        The conclusions of Michigan’s                           • Is certified as not having a
                                                                                                                   Attainment Date, Extensions of the
     analysis are consistent with EPA’s                      significant economic impact on a
                                                                                                                   Attainment Date, and Reclassification
     expanded review of its March 23, 2017                   substantial number of small entities
                                                                                                                   of Several Areas Classified as
     submittal. All areas that Michigan                      under the Regulatory Flexibility Act (5
                                                                                                                   Moderate for the 2008 Ozone National
     sources potentially contribute to are                   U.S.C. 601 et seq.);
                                                                                                                   Ambient Air Quality Standards
     expected to attain and maintain the                        • Does not contain any unfunded
     2012 annual PM2.5 NAAQS, and as                         mandate or significantly or uniquely                  AGENCY:  Environmental Protection
                                                             affect small governments, as described                Agency (EPA).
     demonstrated in its submittal, Michigan
                                                             in the Unfunded Mandates Reform Act                   ACTION: Proposed rule.
     will not contribute to projected
                                                             of 1995 (Pub. L. 104–4);
     nonattainment or maintenance issues at
                                                                • Does not have Federalism                         SUMMARY:   The Environmental Protection
     any sites in 2021. Michigan’s analysis                  implications as specified in Executive                Agency (EPA) is proposing three actions
     shows that through permanent and                        Order 13132 (64 FR 43255, August 10,                  related to the attainment date for 11
     enforceable measures currently                          1999);                                                areas classified as ‘‘Moderate’’ for the
     contained in its SIP, and other                            • Is not an economically significant               2008 ozone National Ambient Air
     emissions reductions occurring in                       regulatory action based on health or                  Quality Standards (NAAQS). First, the
     Michigan and in other states, monitored                 safety risks subject to Executive Order               agency is proposing to determine that
     PM2.5 air quality in all identified areas               13045 (62 FR 19885, April 23, 1997);                  two areas—the Baltimore, Maryland,
     that Michigan sources may impact will                      • Is not a significant regulatory action           and Mariposa County, California,
     continue to improve, and that no further                subject to Executive Order 13211 (66 FR               nonattainment areas—attained the
     measures are necessary to satisfy                       28355, May 22, 2001);                                 standard by the July 20, 2018,
     Michigan’s responsibilities under CAA                      • Is not subject to requirements of                attainment date. Second, the agency is
     section 110(a)(2)(D)(i)(I). Therefore, EPA              Section 12(d) of the National                         proposing to grant requests for a 1-year
     is proposing that prongs one and two of                 Technology Transfer and Advancement                   attainment date extension to two other
     the interstate pollution transport                      Act of 1995 (15 U.S.C. 272 note) because              areas: Denver-Boulder-Greeley-Ft.
     element of Michigan’s infrastructure SIP                application of those requirements would               Collins-Loveland, Colorado, and
     are approvable.                                         be inconsistent with the CAA; and                     Sheboygan County, Wisconsin. Third,


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Document Created: 2018-11-14 03:31:13
Document Modified: 2018-11-14 03:31:13
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 December 14, 2018.
ContactAnthony Maietta, Environmental Protection Specialist, Control Strategies Section, Air Programs Branch (AR-18J), Environmental Protection Agency, Region 5, 77 West Jackson Boulevard, Chicago, Illinois 60604, (312) 353-8777, [email protected]
FR Citation83 FR 56777 
CFR AssociatedEnvironmental Protection; Air Pollution Control; Incorporation by Reference; Intergovernmental Relations; Particulate Matter and Reporting and Recordkeeping Requirements

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