Approval and Promulgation of Implementation Plans; Montana; Butte PM10
| Published date | 19 April 2021 |
| Citation | 86 FR 20353 |
| Record Number | 2021-07793 |
| Section | Proposed rules |
| Court | Environmental Protection Agency |
Federal Register, Volume 86 Issue 73 (Monday, April 19, 2021)
[Federal Register Volume 86, Number 73 (Monday, April 19, 2021)]
[Proposed Rules]
[Pages 20353-20359]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-07793]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Parts 52 and 81
[EPA-R08-OAR-2020-0741; FRL-10022-27-Region 8]
Approval and Promulgation of Implementation Plans; Montana; Butte
PM10 Nonattainment Area Limited Maintenance Plan and Redesignation
Request
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
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SUMMARY: The Environmental Protection Agency (EPA) is proposing to
fully approve the Limited Maintenance Plan (LMP) submitted by the State
of Montana to EPA on March 23, 2020, for the Butte Moderate
nonattainment area (NAA) for particulate matter with an aerodynamic
diameter less than or equal to a nominal 10 micrometers
(PM10) and concurrently redesignate the NAA to attainment
for the 24-hour PM10 National Ambient Air Quality Standard
(NAAQS). In order to approve the LMP and redesignation, EPA is
proposing to determine that the Butte, MT NAA has attained the 1987 24-
hour PM10 NAAQS of 150 [micro]g/m\3\. This determination is
based upon monitored air quality data for the PM10 NAAQS
during the years 2014-2018. EPA is taking this action pursuant to the
Clean Air Act (CAA).
DATES: Written comments must be received on or before May 19, 2021.
ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R08-
OAR-2020-0741 to the Federal Rulemaking Portal: https://www.regulations.gov. Follow the online instructions for submitting
comments. Once submitted, comments cannot be edited or removed from
www.regulations.gov. The EPA may publish any comment received to its
public docket. Do not submit electronically any information you
consider to be Confidential Business Information (CBI) or other
information whose disclosure is restricted by statute. Multimedia
submissions (audio, video, etc.) must be accompanied by a written
comment. The written comment is considered the official comment and
should include discussion of all points you wish to make. The EPA will
generally not consider comments or comment contents located outside of
the primary submission (i.e., on the web, cloud, or other file sharing
system). For additional submission methods, the full EPA public comment
policy, information about CBI or multimedia submissions, and general
guidance on making effective comments, please visit http://www2.epa.gov/dockets/commenting-epa-dockets.
Docket: All documents in the docket are listed in the
www.regulations.gov index. Although listed in the index, some
information is not publicly available, e.g., CBI or other information
whose disclosure is restricted by statute. Certain other material, such
as copyrighted material, will be publicly available only in hard copy.
Publicly available docket materials are available electronically in
www.regulations.gov. To reduce the risk of COVID-19 transmission, for
this action we do not plan to offer hard copy review of the docket.
Please email or call the person listed in the FOR FURTHER INFORMATION
CONTACT section if you need to make alternative arrangements for access
to the docket.
FOR FURTHER INFORMATION CONTACT: Kate Gregory, Air and Radiation
Division, U.S. Environmental Protection Agency (EPA), Region 8, Mail
Code 8P-ARD-QP, 1595 Wynkoop Street, Denver, Colorado 80202-1129, (303)
312-6175, [email protected].
SUPPLEMENTARY INFORMATION: Throughout this document wherever ``we,''
``us,'' or ``our'' is used, we mean the EPA.
I. Background
Description of the Butte NAA
The Butte NAA is the only NAA in Silver Bow County, is irregularly
shaped, and generally encompasses the populated areas surrounding the
city of Butte, except for the town of Walkerville. Butte was originally
designated as a Group I area on August 7, 1987, meaning it was likely
to violate the PM10 NAAQS, and was subsequently classified
as a Moderate NAA for the 1987 24-hour PM10 NAAQS on March
15, 1991. See 56 FR 11101. States containing initial Moderate
PM10 NAAs were required to submit, by November 15, 1991, a
Moderate NAA State Implementation Plan (SIP) that, among other
requirements, implemented Reasonably Available Control Measures (RACM)
by December 10, 1993, and demonstrated whether it was practicable to
attain the PM10 NAAQS by December 31, 1994. See generally 57
FR 13498 (April 16, 1992); see also 57 FR 18070 (April 28, 1992).
The State of Montana submitted an initial PM10 SIP to
EPA on July 9, 1992, and a subsequent submission on January 13, 1993.
EPA approved the Butte initial control plan on March 11, 1994 (59 FR
11550). Revisions to emissions limits, associated attainment and
maintenance demonstrations and contingency measures were submitted to
EPA on August 26, 1994. The State of Montana's SIP for the Butte
Moderate NAA included, among other things: A comprehensive emissions
inventory; RACM; A demonstration that attainment of the PM10
NAAQS would be achieved in Butte by December 31, 1994; Reasonable
Further Progress (RFP) requirements; and control measures that satisfy
the contingency measures requirement of section 172(c)(9) of the CAA.
The EPA fully approved the Butte NAA PM10 attainment plan on
March 22, 1995 (60 FR 15056).
II. Requirements for Redesignation
A. CAA Requirements for Redesignation of NAAs
NAAs can be redesignated to attainment after the area has measured
air quality data showing it has attained the NAAQS and when certain
planning requirements are met. Section 107(d)(3)(E) of the CAA, and the
General Preamble to Title I provide the criteria for redesignation. See
57 FR 13498 (April 16, 1992). These criteria are further clarified in a
policy and guidance memorandum from John Calcagni, Director, Air
Quality Management Division, EPA Office of Air Quality Planning and
Standards dated September 4, 1992, ``Procedures for Processing Requests
to Redesignate Areas to Attainment.\1\ '' The criteria for
redesignation are:
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\1\ The ``Procedures for Processing Requests to Redesignate
Areas to Attainment'' (Calcagni memo) outlines the criteria for
redesignation (see docket for memo).
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(1) The Administrator has determined that the area has attained the
applicable NAAQS;
(2) The Administrator has fully approved the applicable SIP for the
area under section 110(k) of the CAA;
(3) The state containing the area has met all requirements
applicable to the area under section 110 and part D of the CAA;
(4) The Administrator has determined that the improvement in air
quality is due to permanent and enforceable reductions in emissions;
and
(5) The Administrator has fully approved a maintenance plan for the
area as meeting the requirements of section 175A of the CAA.
[[Page 20354]]
B. The LMP Option for PM10 NAAs
On August 9, 2001, the EPA issued guidance on streamlined
maintenance plan provisions for certain moderate PM10 NAAs
seeking redesignation to attainment (Memo from Lydia Wegman, Director,
Air Quality Standards and Strategies Division, entitled ``Limited
Maintenance Plan Option for Moderate PM10 Nonattainment
Areas,'' (hereafter the LMP Option memo)).\2\ The LMP Option memo
contains a statistical demonstration to show that areas meeting certain
air quality criteria will, with a high degree of probability, maintain
the standard 10 years into the future. Thus, the EPA has already
provided the maintenance demonstration for areas meeting the criteria
outlined in the LMP Option memo. It follows that future year emission
inventories for these areas, and some of the standard analyses to
determine transportation conformity with the SIP are no longer
necessary.
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\2\ The ``Limited Maintenance Plan Option for Moderate
PM10 Nonattainment Areas'' outlines the criteria for
development of a PM10 limited maintenance plan (see
docket for memo).
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To qualify for the LMP Option, the area should have attained the
1987 24-hour PM10 NAAQS, based upon the most recent 5 years
of air quality data at all monitors in the area, and the 24-hour design
value should be at or below the Critical Design Value (CDV). The CDV is
a calculated design value that indicates that the area has a low
probability (1 in 10) of exceeding the NAAQS in the future. For the
purposes of qualifying for the LMP option, a presumptive CDV of 98
[micro]g/m\3\ is most often employed, but an area may elect to use a
site-specific CDV should the average design value be above 98 [micro]g/
m\3\, while demonstrating that the area has a low probability of
exceeding the NAAQS in the future. The annual PM10 standard
was effectively revoked on December 18, 2006 (71 FR 61143), and as such
will not be discussed as a requirement for qualifying for the LMP
option. In addition, the area should expect only limited growth in on-
road motor vehicle PM10 emissions (including fugitive dust)
and should have passed a motor vehicle regional emissions analysis
test. The LMP Option memo also identifies core provisions that must be
included in the LMP. These provisions include an attainment year
emissions inventory, assurance of continued operation of an EPA-
approved air quality monitoring network, and contingency provisions.
C. Conformity Under the LMP Option
The transportation conformity rule (40 CFR parts 51 and 93) and the
general conformity rule (40 CFR parts 51 and 93) apply to NAAs and
maintenance areas covered by an approved maintenance plan. Under either
conformity rule, an acceptable method of demonstrating that a federal
action conforms to the applicable SIP is to demonstrate that expected
emissions from the planned action are consistent with the emissions
budget for the area.
While the EPA's LMP Option does not exempt an area from the need to
affirm conformity, it explains that the area may demonstrate conformity
without submitting an emissions budget. Under the LMP Option, emissions
budgets are treated as essentially not constraining for the length of
the maintenance period because it is unreasonable to expect that the
qualifying areas would experience so much growth in that period that a
violation of the PM10 NAAQS would result. For transportation
conformity purposes, the EPA would conclude that emissions in these
areas need not be capped for the maintenance period; and therefore, a
regional emissions analysis would not be required. Similarly, federal
actions subject to the general conformity rule could be considered to
satisfy the ``budget test'' specified in 40 CFR 93.158(a)(5)(i)(A) for
the same reasons that the budgets are essentially considered not
limited.
III. Review of Montana's Submittal Addressing the Requirements for
Redesignation and Limited Maintenance Plan
A. Has the Butte NAA attained the applicable NAAQS?
States must demonstrate that an area has attained the 24-hour
PM10 NAAQS through analysis of ambient air quality data from
an ambient air monitoring network representing peak PM10
concentrations. The data should be stored in the EPA Air Quality System
(AQS) database. Today, EPA is proposing to determine that the Butte NAA
has attained the PM10 NAAQS based on monitoring data from
calendar years 2014-2018. The 24-hour standard is attained when the
expected number of days with levels above 150 [micro]g/m\3\ (averaged
over a 3-year period) is less than or equal to one. See 40 CFR 50.6(a).
Three consecutive years of air quality data are generally necessary to
show attainment of the 24-hour and annual standards for
PM10. See 40 CFR part 50, appendix K. A complete year of air
quality data, as referred to in 40 CFR part 50, appendix K, is
comprised of all four calendar quarters with each quarter containing
data from at least 75% of the scheduled sampling days.
The Butte NAA has one State and Local Air Monitoring Station
(SLAMS) monitor operated by the Montana Department of Environmental
Quality (MDEQ). Table 1 summarizes the PM10 data collected
from 2014-2019 for the Butte NAA.\3\ The EPA deems the data collected
from these monitors valid, and the data have been submitted by the MDEQ
to be included in AQS.
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\3\ While the submission from the State for this action includes
2014-2018 monitoring data, the EPA supplied 2019 monitoring data in
this action in order to provide an analysis of PM10
concentrations in the Butte, MT area using the most current
monitoring data available.
Table 1--Summary of Maximum 24-Hour PM10 Concentrations ([micro]g/m\3\) for Butte 2014-2019
[Based on data from Greeley School site, AQS identification number (30-093-0005)]
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Maximum 2nd Maximum Number of
Year concentration concentration exceedances Monitoring site
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2014......................... 60 57 0 Greeley School.
2015......................... 118 115 0 Greeley School.
2016......................... 52 51 0 Greeley School.
2017......................... 144 111 0 Greeley School.
2018......................... 72 66 0 Greeley School.
2019......................... 69 56 0 Greeley School.
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The PM10 concentrations reported at the Butte monitoring
site showed no measured exceedances of the 24-hour PM10
NAAQS from 2014-2018, and as such, the EPA proposes to determine that
the Butte NAA has attained the
[[Page 20355]]
standard for the 24-hour PM10 NAAQS. Additionally, EPA
analysis of PM10 concentrations reported at the Butte
monitoring site in the year 2019 show no measured exceedances.
B. Does the Butte NAA have a fully approved SIP under CAA section
110(k)?
In order to qualify for redesignation, the SIP for the area must be
fully approved under CAA section 110(k) and must satisfy all
requirements that apply to the area. Section 189 of the CAA contains
requirements and milestones for all initial Moderate NAA SIPs
including: (1) Provisions to assure that RACM (including such
reductions in emissions from existing sources in the area as may be
obtained through the adoption, at a minimum, of Reasonably Available
Control Technology (RACT) shall be implemented no later than December
10, 1993; (2) A demonstration (including air quality modeling) that the
plan will provide for attainment as expeditiously as practicable by no
later than December 31, 1994, or, where the state is seeking an
extension of the attainment date under section 188(e), a demonstration
that attainment by December 31, 1994, is impracticable and that the
plan provides for attainment by the most expeditious alternative date
practicable (CAA sections 189(a)(1)(A)); (3) Quantitative milestones
which are to be achieved every 3 years and which demonstrate RFP toward
attainment by December 31, 1994, (CAA sections 172(c)(2) and 189(c));
and (4) Contingency measures to be implemented if the area fails to
make RFP or attain by its attainment deadline. These contingency
measures are to take effect without further action by the state or the
EPA. (CAA section 172(c)(9)).
The EPA approved the Butte Moderate area plan on May 22, 1995 (60
FR 15056). The Butte plan included RACM, an attainment demonstration,
emissions inventory, quantitative milestones, and control and
contingency measure requirements. As such, the area has a fully
approved NAA SIPs under section 110(k) of the CAA.
C. Has the State met all applicable requirements under section 110 and
Part D of the CAA?
Section 107(d)(3)(E) of the CAA requires that a state containing a
NAA must meet all applicable requirements under section 110 and Part D
of the CAA for an area to be redesignated to attainment. The EPA
interprets this to mean that the state must meet all requirements that
applied to the area prior to, and at the time of, the submission of a
complete redesignation request. The following is a summary of how
Montana meets these requirements.
1. CAA Section 110 Requirements
Section 110(a)(2) of the CAA contains general requirements for
SIPs. These requirements include, but are not limited to, submittal of
a SIP that has been adopted by the state after reasonable notice and
public hearing; provisions for establishment and operation of
appropriate apparatus, methods, systems and procedures necessary to
monitor ambient air quality; implementation of a permit program;
provisions for Part C--Prevention of Significant Deterioration (PSD)
and Part D--New Source Review (NSR) permit programs; criteria for
stationary source emission control measures, monitoring and reporting,
provisions for modeling; and provisions for public and local agency
participation. See the General Preamble for further explanation of
these requirements. See 57 FR 13498 (April 16, 1992).
For purposes of redesignation, the EPA's review of the Montana SIP
shows that the State has satisfied all requirements under section
110(a)(2) of the CAA. Further, in 40 CFR 52.1372, the EPA has approved
Montana's plan for the attainment and maintenance of the national
standards under section 110.
2. Part D Requirements
Part D contains general requirements applicable to all areas
designated nonattainment. The general requirements are followed by a
series of subparts specific to each pollutant. All PM10 NAAs
must meet the general provisions of Subpart 1 and the specific
PM10 provisions in Subpart 4, ``Additional Provisions for
Particulate Matter Nonattainment Areas.'' The following paragraphs
discuss these requirements as they apply to the Butte NAA.
3. Subpart 1, Section 172(c)
Subpart 1, section 172(c) contains general requirements for NAA
plans. A thorough discussion of these requirements may be found in the
General Preamble. See 57 FR 13538 (April 16, 1992). CAA section
172(c)(2) requires nonattainment plans to provide for RFP. Section
171(1) of the CAA defines RFP as ``such annual incremental reductions
in emissions of the relevant air pollutant as are required by this part
(part D of title I) or may reasonably be required by the Administrator
for the purpose of ensuring attainment of the applicable national
ambient air quality standard by the applicable date.'' Since EPA is
proposing to determine that the Butte NAA is in attainment of the
PM10 NAAQS, we believe that no further showing of RFP or
quantitative milestones is necessary.
4. Section 172(c)(3)--Emissions Inventory Section
Section 172(c)(3) of the CAA requires a comprehensive, accurate,
current inventory of actual emissions from all sources in the Butte
PM10 NAA. Montana included an emissions inventory for the
calendar year 2014 with the March 23, 2020 submittal of the LMP for the
NAA. The LMP Option memo states that an attainment inventory should
represent emissions during the same 5-year period associated with the
air quality data used to determine that the area meets the
applicability requirements of the LMP option. The Butte LMP includes an
emission inventory from 2014, representative of the 2013-2017 5-year
period which served as the 5-year period relied upon in the LMPs as
meeting the air quality data requirements of the LMP option memo.\4\
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\4\ The emissions inventory included in the Butte MT submission
is the 2014 National Emissions Inventory (NEI). The NEI is a
composite of data from many different sources, with PM data coming
primarily from EPA models as well as from state, tribal, and local
air quality management agencies. Different data sources use
different data collection methods, and many of the emissions data
are based on estimates rather than actual measurements. The EPA
considers the 2014 NEI representative of the period from 2014-2018
because MT provided comparable vehicle miles traveled (VMT) data in
their submission. See Butte, MT Submission, Appendix C, Montana
Department of Transportation Future VMT Projections, p.C-1 in
docket.
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5. Section 172(c)(5)--NSR
The 1990 CAA Amendments contained revisions to the NSR program
requirements for the construction and operation of new and modified
major stationary sources located in NAAs. The CAA requires states to
amend their SIPs to reflect these revisions but does not require
submittal of this element along with the other SIP elements. The CAA
established June 30, 1992, as the submittal date for the revised NSR
programs (section 189 of the CAA).
Montana has a fully approved nonattainment NSR program, approved on
August 30, 1995 (60 FR 45051). Montana also has a fully approved PSD
program, approved on August 30, 1995 (60 FR 45051). Upon the effective
date of redesignation of an area from nonattainment to attainment, the
requirements of the Part D NSR program will be replaced by the PSD
program and the maintenance area NSR program.
[[Page 20356]]
6. Section 172(c)(7)--Compliance With CAA Section 110(a)(2): Air
Quality Monitoring Requirements
Once an area is redesignated, the state must continue to operate an
appropriate air monitoring network in accordance with 40 CFR part 58 to
verify attainment status of the area. The State of Montana operates one
PM10 SLAMS in each of the NAAs. The Butte monitoring site
meets EPA SLAMS network design and siting requirements set forth at 40
CFR part 58, appendices D and E. In section 3.5 of the LMP that we are
proposing to approve, the State commits to continued operation of the
monitoring network.
7. Section 172(c)(9)--Contingency Measures
The CAA requires that contingency measures take effect if the area
fails to meet RFP requirements or fails to attain the NAAQS by the
applicable attainment date. Since the Butte NAA has attained the 1987
24-hour PM10 NAAQS, contingency measures are no longer
required under section 172(c)(9) of the CAA. However, contingency
provisions are required for maintenance plans under section 175(a)(d).
We describe the contingency provisions Montana provided in the LMP
section below.
8. Part D Subpart 4
Part D subpart 4, section 189(a), (c) and (e) requirements apply to
any Moderate NAA before the area can be redesignated to attainment. The
requirements which were applicable prior to the submission of the
request to redesignate the area must be fully approved into the SIP
before redesignating the area to attainment. These requirements
include: (a) Provisions to assure that RACM was implemented by December
10, 1993; (b) Either a demonstration that the plan provided for
attainment as expeditiously as practicable but not later than December
31, 1994, or a demonstration that attainment by that date was
impracticable; (c) Quantitative milestones which were achieved every 3
years and which demonstrate RFP toward attainment by December 31, 1994;
and (d) Provisions to assure that the control requirements applicable
to major stationary sources of PM10 also apply to major
stationary sources of PM10 precursors except where the
Administrator determined that such sources do not contribute
significantly to PM10 levels which exceed the NAAQS in the
area. These provisions were fully approved into the SIP upon the EPA's
approval of the PM10 Moderate area plan for the Butte NAA on
March 22, 1995 (60 FR 15056).
D. Has the State demonstrated that the air quality improvement is due
to permanent and enforceable reductions?
The state must be able to reasonably attribute the improvement in
air quality to permanent and enforceable emission reductions. In making
this showing, the state must demonstrate that air quality improvements
are the result of actual enforceable emission reductions. This showing
should consider emission rates, production capacities, and other
related information. The analysis should assume that sources are
operating at permitted levels (or historic peak levels) unless evidence
is presented that such an assumption is unrealistic. Permanent and
enforceable control measures in the Butte NAA SIP includes RACM.
Emission sources in the NAA has been implementing RACM for at least 10
years.
Areas that qualify for the LMP will meet the NAAQS, even under
worst case meteorological conditions. Under the LMP option, the
maintenance demonstration is presumed to be satisfied if an area meets
the qualifying criteria. Thus, by qualifying for the LMP, Montana has
demonstrated that the air quality improvements in the Butte NAA is the
result of permanent emission reductions and not a result of either
economic trends or meteorology. A description of the LMP qualifying
criteria and how the Butte area meets these criteria is provided in the
following section.
Permanent and enforceable emission reductions in the Butte NAA have
reduced emissions 76% since 1990. The primary controls incorporated
into the SIP included rules specifying wood combustion control, rules
specifying open burning controls, rules specifying fugitive road dust
control, permit condition revisions at the Montana Resources mine,
crusher, and concentrator and at Rh[ocirc]ne-Poulenc industrial
sources, and federal tailpipe standards. Based on the 2014 national
emissions inventory, PM10 emissions in all source areas are
below the levels approved in the original control plan.\5\
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\5\ See Butte, MT submission in docket, Table 2.4--Butte, MT--
PM10 Emission Summary, p. 18.
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E. Does the area have a fully approved maintenance plan pursuant to
section 175A of the CAA?
In this action, we are proposing to approve the LMP for the Butte
NAA in accordance with the principles outlined in the LMP Option.
F. Has the State demonstrated that the Butte NAA qualifies for the LMP
Option?
The LMP Option memo outlines the requirements for an area to
qualify for the LMP Option. First, the area should be attaining the
NAAQS. As stated above in Section III. A., the EPA has determined that
the Butte NAA is attaining the PM10 NAAQS.
Second, the average design value (ADV) for the past 5 years of
monitoring data (2014-2018) must be at or below the CDV. As noted in
Section II.B., the CDV is a margin of safety value and is the value at
which an area has been determined to have a 1 in 10 probability of
exceeding the NAAQS. The LMP Option memo provides two methods for
review of monitoring data for the purpose of qualifying for the LMP
option. The first method is a comparison of a site's ADV with the CDV
of 98 [micro]g/m\3\ for the 24-hour PM10 NAAQS. A second
method that applies to the 24-hour PM10 NAAQS is the
calculation of a site-specific CDV and a comparison of the site-
specific CDV with the ADV for the past 5 years of monitoring data.
Table 2 outlines the design values for the years 2014-2018, and
presents the ADC.
Table 3 summarizes the wildfire related events that were excluded
from the calculated design values in Table 2. Table 3 include all
regionally concurred exceptional events, as well as values between 98
[micro]g/m\3\ and 155 [micro]g/m\3\, which were treated in a manner
analogous to exceedance data under the Exceptional Events Rule (EER)
for the purpose of determining the LMP option eligibility. The values
between 98 [micro]g/m\3\ and 155 [micro]g/m\3\ will remain in the Air
Quality System (AQS) database for use in calculating DV's for every
purpose besides determining LMP eligibility.\6\ The EER can be found in
40 CFR 50.14 and 40 CFR 51.930, and outlines the requirements for the
treatment of monitored air quality data that has been heavily
influenced by an exceptional event. 40 CFR 50.1(j) defines an
exceptional event as an event which affects air quality, is not
reasonably controllable or preventable, is an event caused by human
activity that is unlikely to recur at a particular location or a
natural event and is determined by the Administrator in accordance with
40 CFR 50.14 to be an exceptional event. Exceptional events do not
include stagnation of air masses or meteorological inversions,
[[Page 20357]]
meteorological events involving high temperatures or lack of
precipitation, or air pollution relating to source noncompliance. 40
CFR 50.14(b) states that the EPA shall exclude data from use in
determinations of exceedances and NAAQS violations where a state
demonstrates to the EPA's satisfaction that an exceptional event caused
a specific air pollution concentration in excess of one or more NAAQS
at a particular air quality monitoring location and otherwise satisfies
the requirements of section 50.14. Table 3 below includes some
exceptional events not formally concurred on by EPA. These exceptional
events were excluded by EPA in accordance with the LMP guidance.\7\ We
have concurred that these values can be excluded for the sole purpose
of determining PM10 LMP eligibility and supporting
documentation of EPA's concurrence with the wildfire related events can
be found in the docket.\8\
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\6\ Update on Application of the Exceptional Events Rule to the
PM10 Limited Maintenance Plan Option, U.S. EPA, William
T. Harnett, Director, Air Quality Policy Division, OAQPS, May 7,
2009.
\7\ See Update on Application of the Exceptional Events Rule to
the PM10 Limited Maintenance Plan Option, U.S. EPA,
William T. Harnett, Director, Air Quality Policy Division, OAQPS,
May 7, 2009 and Additional Methods, Determinations, and Analyses to
Modify Air Quality Data Beyond Exceptional Events, U.S. EPA, Richard
Wayland, Director, Air Quality Assessment Division and Anna Marie
Wood, Director, Air Quality Policy Division, April 4, 2019 memos in
docket.
\8\ February 8, 2019 letter to MDEQ, Re: Exceptional Events
Requests Regarding Exceedances of the 24-hour PM10 NAAQS
and the LMP Eligibility Threshold at Montana Monitoring Sites with
PM10 Nonattainment Areas; and November 1, 2018 letter to
MDEQ, Re: Request for EPA concurrence on exceptional event claims
for fine (PM2.5) and coarse (PM10) particulate
matter data impacted by wildfires in 2015 and 2016. See Butte, MT
submission in docket.
Table 2-Summary of 24-Hour PM10 Design Concentrations ([micro]g/m\3\) for Butte 2014-2018
[Based on data from Greeley School site, AQS identification number (30-029-0049)]
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Design concentration
Design concentration years ([micro]g/m\3\) Monitoring site
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2014-2016..................................... 60 Greeley School.
2015-2017..................................... 85 Greeley School.
2016-2018..................................... 80 Greeley School.
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Average Design Concentration (Of Most Recent 3 Design 75 [micro]g/m\3\
Concentrations)
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Table 3-Butte 24-Hour PM10 Events Excluded From the 2014-2019 Data for the Purpose of Determining LMP
Eligibility
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24-Hour value
Date ([micro]g/m\3\) Monitoring site
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8/15/2015..................................... 100 Greeley School.
8/20/2015..................................... 103 Greeley School.
8/28/2015..................................... 115 Greeley School.
8/29/2015..................................... 118 Greeley School.
9/2/2017...................................... 111 Greeley School.
9/3/2017...................................... 144 Greeley School.
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These values were excluded by EPA solely for the purpose of determining limited maintenance plan (LMP)
eligibility in accordance with LMP guidance. The values remain in AQS and are still used for all other
purposes (including calculating the estimated exceedances and official design concentrations).
The ADV for the 24-hour PM10 NAAQS for Butte, based on
data from the SLAMS monitor for the years 2014-2018 is 75 [micro]g/
m\3\. This value falls below the presumptive 24-hour CDV of 98
[micro]g/m\3\ and would all meet the first threshold for LMP
eligibility.
In addition to having an ADV that is lower than either the
presumptive or area specific CDV, and in order to qualify for the LMP,
the area must meet the motor vehicle regional emissions analysis test
in attachment B of the LMP Option memo. Using the methodology outlined
in the memo, based on monitoring data for the period 2014-2018, the EPA
has determined that the Butte NAA passes the motor vehicle regional
emissions analysis test, with a projected design value of 74.3
[micro]g/m\3\ after 10 years, respectively, attributable to motor
vehicle emission growth. For the calculations used to determine how the
Butte NAA passed the motor vehicle regional analysis test, see the
supporting documents in the docket.\9\
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\9\ See memo to file in docket dated February 16, 2021 titled
``Memo to File--Butte, MT Motor Vehicle Regional Emissions
Analysis''.
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The monitoring data for the period 2014-2018 shows that Butte has
attained the 24-hour NAAQS for PM10, and the 24-hour ADV for
the area is less than the 24-hour PM10 presumptive and area-
specific CDV. Finally, the area has met the regional vehicle emissions
analysis test. Thus, the Butte NAA qualifies for the LMP Option
described in the LMP Option memo. The LMP Option memo also indicates
that once a state selects the LMP Option and it is in effect, the state
will be expected to determine, on an annual basis, that the LMP
criteria are still being met. If the state determines that the LMP
criteria are not being met, it should take action to reduce
PM10 concentrations enough to requalify for the LMP. One
possible approach the state could take is to implement contingency
measures. Please see section 3.6 of the Butte LMP for a description of
contingency provisions submitted as part of the State's submittal.
G. Does the State have an approved attainment emissions inventory which
can be used to demonstrate attainment of the NAAQS?
The state's approved attainment plan should include an emissions
inventory (attainment inventory) which can be used to demonstrate
attainment of the NAAQS. The inventory should represent emissions
during the same 5-year period associated with air quality data used to
determine whether the area meets the applicability requirements of the
LMP Option. The state should review its inventory every 3 years to
ensure emissions growth is incorporated in the attainment inventory if
necessary.
[[Page 20358]]
In this instance, Montana completed an attainment year inventory for
the attainment year 2014 for the Butte NAA. The EPA has reviewed the
2014 emissions inventories and determined that they are current,
accurate and complete. In addition, the emissions inventory submitted
with the LMP for the calendar year 2014 is representative of the level
of emissions during the time period used to calculate the ADV since
2014 is included in the 5-year period used to calculate the design
values (2014-2018).
H. Does the LMP include an assurance of continued operation of an
appropriate epa-approved air quality monitoring network, in accordance
with 40 CFR part 58?
The PM10 monitoring network for the Butte NAA has been
developed and maintained in accordance with federal siting and design
criteria in 40 CFR part 58, appendices D and E and in consultation with
the EPA Region 8. In Section 3.5 of the Butte LMP, Montana states that
it will continue to operate its monitoring network to meet EPA
requirements.
I. Does the plan meet the CAA requirements for contingency provisions
for maintenance plans?
Section 175A of the CAA states that a maintenance plan must include
contingency provisions, as necessary, to promptly correct any violation
of the NAAQS which may occur after redesignation of the area to
attainment. As explained in the LMP Option memo, these contingency
measures do not have to be fully adopted at the time of redesignation.
As noted above, CAA section 175A requirements are distinct from CAA
section 172(c)(9) contingency measures. Section 3.6 of the Butte LMP
describes a process and timeline to identify and evaluate appropriate
contingency measures in the event of a quality assured violation of the
PM10 NAAQS. Upon notification of a PM10
exceedance in any of the three areas, the MDEQ and the appropriate
local government will develop contingency measures designed to prevent
or correct a violation of the PM10 standard. This process
will be completed within twelve months of the exceedance notification.
Upon violating the PM10 standard, the MDEQ and local
government will determine if the local contingency measures will be
adequate to prevent further exceedances or violations. If the agencies
determine that local measures will be inadequate, the MDEQ and local
government will adopt state-enforceable measures.
The current and proposed contingency provisions in the Butte LMP
meet the requirements for contingency provisions as outlined in the LMP
Option memo.
J. Has the State met transportation and general conformity
requirements?
1. Transportation Conformity
Transportation conformity is required by section 176(c) of the CAA.
Conformity to a SIP means that transportation activities will not
produce new air quality violations, worsen existing violations, or
delay timely attainment of the NAAQS (CAA section 176(c)(1)(B)). The
EPA's conformity rule at 40 CFR part 93, subpart A requires that
transportation plans, programs and projects conform to SIPs and
establishes the criteria and procedures for determining whether or not
they conform. To effectuate its purpose, the conformity rule typically
requires a demonstration that emissions from the applicable Regional
Transportation Plan and the Transportation Improvement Program are
consistent with the motor vehicle emission budget (MVEB) contained in
the control strategy SIP revision or maintenance plan (40 CFR 93.101,
93.118, and 93.124). The EPA notes that a MVEB is usually defined as
the level of mobile source emissions of a pollutant relied upon in the
attainment or maintenance demonstration to attain or maintain
compliance with the NAAQS in the nonattainment or maintenance areas.
MVEBs are, however, treated differently with respect to LMP areas.\10\
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\10\ Further information concerning the EPA's interpretations
regarding MVEBs can be found in the preamble to the EPA's November
24, 1993, transportation conformity rule (see 58 FR 62193-62196).
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Our LMP Option memorandum does not require that MVEBs be identified
in the maintenance plan. While the EPA's LMP Option memorandum does not
exempt an area from the need to affirm conformity, it explains that the
area may demonstrate transportation conformity without identifying and
submitting a MVEB. The basis for this provision is that it is
unreasonable to expect that an LMP area will experience so much growth
during the maintenance period that a violation of the PM10
NAAQS would result. Therefore, for transportation conformity purposes,
the EPA has concluded that mobile source emissions in LMP areas need
not be capped, with respect to a MVEB, for the maintenance period and a
regional emissions analysis (40 CFR 93.118), for transportation
conformity purposes, is also not required.
However, since LMP areas are still maintenance areas, certain
aspects will continue to be required for transportation projects
located within the Butte PM10 maintenance area.
Specifically, for conformity determinations, projects will have to
demonstrate that they are fiscally constrained (40 CFR 93.108) and meet
the criteria for consultation (40 CFR 93.105 and 40 CFR 93.112) and
timely implementation (as applicable) of Transportation Control
Measures (40 CFR 93.113). In addition, projects located within the
Butte PM10 LMP area will be required to be evaluated for
potential PM10 hot-spot issues in order to satisfy the
``project level'' conformity determination requirements. As
appropriate, a project may then need to address the applicable criteria
for a PM10 hot-spot analysis as provided in 40 CFR 93.116
and 40 CFR 93.123.
Finally, our proposed approval of the Butte PM10 LMP may
affect future PM10 project-level transportation conformity
determinations prepared by the Montana Department of Transportation in
conjunction with the Federal Highway Administration and the Federal
Transit Administration. See 40 CFR 93.100. As such, the EPA is
proposing to approve the Butte LMP as meeting the appropriate
transportation conformity requirements found in 40 CFR part 93, subpart
A.
2. General Conformity
Federal actions, other than transportation conformity, that meet
specific criteria need to be evaluated with respect to the requirements
of 40 CFR part 93, subpart B. The EPA's general conformity rule
requirements are designed to ensure that emissions from a federal
action will not cause or contribute to new violations of the NAAQS,
exacerbate current violations, or delay timely attainment. However, as
noted in our LMP Option memorandum and similar to the above discussed
transportation conformity provisions, federal actions subject to our
general conformity requirements would be considered to satisfy the
``budget test,'' as specified in 40 CFR 93.158(a)(5)(i)(A). As
discussed above, the basis for this provision in the LMP Option
memorandum is that it is unreasonable to expect that an LMP area will
experience so much growth during the maintenance period that a
violation of the PM10 NAAQS would result. Therefore, for
purposes of general conformity, a general conformity PM10
emissions budget does not need to be identified in the maintenance
plan, nor
[[Page 20359]]
submitted, and the emissions from federal agency actions are
essentially considered to not be limited.
IV. The EPA's Proposed Action
For the reasons explained in Section III, we are proposing to
approve the LMP for the Butte NAA and the State's request to
redesignate the Butte NAA from nonattainment to attainment for the 1987
24-hour PM10 NAAQS. Additionally, the EPA is proposing to
determine that the Butte NAA has attained the NAAQS for
PM10. This determination is based upon monitored air quality
data for the PM10 NAAQS during the years 2014-2018. The EPA
is proposing to approve the Butte LMP as meeting the appropriate
transportation conformity requirements found in 40 CFR part 93, subpart
A.
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 Act and applicable
Federal regulations. 42 U.S.C. 7410(k); 40 CFR 52.02(a). Thus, in
reviewing SIP submissions, the EPA's role is to approve state choices,
provided that they meet the criteria of the CAA. Accordingly, this
action merely proposes to approve 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 proposed 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
40 CFR Part 52
Environmental protection, Air pollution control, Carbon monoxide,
Greenhouse gases, Incorporation by reference, Intergovernmental
relations, Lead, Nitrogen dioxide, Ozone, Particulate matter, Reporting
and recordkeeping requirements, Sulfur oxides, Volatile organic
compounds.
40 CFR Part 81
Environmental protection, Air pollution control, National parks,
and Wilderness areas.
Authority: 42 U.S.C. 7401 et seq.
Dated: April 8, 2021.
Debra H. Thomas,
Acting Regional Administrator, Region 8.
[FR Doc. 2021-07793 Filed 4-16-21; 8:45 am]
BILLING CODE 6560-50-P
