[Federal Register Volume 85, Number 57 (Tuesday, March 24, 2020)]
[Proposed Rules]
[Pages 16590-16599]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-05960]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[EPA-R05-OAR-2019-0699; FRL-10006-84-Region 5]
Air Plan Approval; Wisconsin; Second Maintenance Plan for 1997
Ozone NAAQS; Door County, Kewaunee County, Manitowoc County and
Milwaukee-Racine Area
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
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SUMMARY: The Environmental Protection Agency (EPA) is proposing to
approve a revision to the Wisconsin State Implementation Plan (SIP). On
December 13, 2019, the Wisconsin Department of Natural Resources (WDNR)
submitted the state's plans for maintaining the 1997 ozone National
Ambient Air Quality Standard (NAAQS or standard) in the following
areas: Kewaunee County, Door County, Manitowoc County, and Milwaukee-
Racine area (Kenosha, Milwaukee, Ozaukee, Racine, Washington and
Waukesha counties). EPA is proposing to approve these maintenance plans
because they provide for the maintenance of the 1997 ozone NAAQS
through the end of the second 10-year maintenance period. This action,
when finalized, would make certain commitments related to maintenance
of the 1997 ozone NAAQS in these areas federally enforceable as part of
the Wisconsin SIP.
DATES: Written comments must be received at the address below on or
before April 23, 2020.
ADDRESSES: Submit your comments, identified by Docket No. EPA-R05-OAR-
2019-0699 at https://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. 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.,
[[Page 16591]]
on the web, cloud, or other file sharing system). For additional
submission methods, please contact Emily Crispell, (312) 353-8512,
[email protected]. For the full EPA public comment policy,
information about CBI or multimedia submissions, and general guidance
on making effective comments, please visit https://www.epa.gov/dockets/commenting-epa-dockets.
FOR FURTHER INFORMATION CONTACT: Emily Crispell, Environmental
Scientist, Control Strategies Section, Air Programs Branch (AR-18J),
Environmental Protection Agency, Region 5, 77 West Jackson Boulevard,
Chicago, Illinois 60604, (312) 353-8512, [email protected].
SUPPLEMENTARY INFORMATION: Throughout this document, the terms ``we'',
``us'', and ``our'' refer to EPA.
Table of Contents
I. Summary of EPA's Proposed Action
II. Background
III. EPA's Evaluation of WDNR's SIP Submittal
A. Second Maintenance Plan
B. Transportation Conformity
IV. Proposed Action
V. Statutory and Executive Order Reviews
I. Summary of EPA's Proposed Action
EPA is proposing to approve, as a revision to the Wisconsin SIP,
the 1997 ozone NAAQS maintenance plans for the Door County, Kewaunee
County, Manitowoc County, and Milwaukee-Racine areas. The maintenance
plans are designed to keep the Kewaunee County area in attainment of
the 1997 ozone NAAQS through 2028, the Door County and Manitowoc County
areas in attainment through 2030, and the Milwaukee-Racine area in
attainment through 2032.
II. Background
Ground-level ozone is formed when oxides of nitrogen
(NOX) and volatile organic compounds (VOC) react in the
presence of sunlight. These two pollutants are referred to as ozone
precursors. Scientific evidence indicates that adverse public health
effects occur following exposure to ozone.
In 1979, under section 109 of the Clean Air Act (CAA), EPA
established primary and secondary NAAQS for ozone at 0.12 parts per
million (ppm), averaged over a 1-hour period. 44 FR 8202 (February 8,
1979). On July 18, 1997, EPA revised the primary and secondary NAAQS
for ozone to set the acceptable level of ozone in the ambient air at
0.08 ppm, averaged over an 8-hour period. 62 FR 38856 (July 18,
1997).\1\ EPA set the 8-hour ozone NAAQS based on scientific evidence
demonstrating that ozone causes adverse health effects at lower
concentrations and over longer periods of time than was understood when
the pre-existing 1-hour ozone NAAQS was set.
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\1\ In March 2008, EPA completed another review of the primary
and secondary ozone standards and tightened them further by lowering
the level for both to 0.075 ppm. 73 FR 16436 (March 27, 2008).
Additionally, in October 2015, EPA completed a review of the primary
and secondary ozone standards and tightened them by lowering the
level for both to 0.70 ppm. 80 FR 65292 (October 26, 2015).
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Following promulgation of a new or revised NAAQS, EPA is required
by the CAA to designate areas throughout the nation as attaining or not
attaining the NAAQS. On April 30, 2004 (69 FR 23857), EPA designated
Kewaunee County, Door County, Manitowoc County, and the Milwaukee-
Racine area as nonattainment for the 1997 ozone NAAQS, and the
designations became effective on June 15, 2004. Under the CAA, states
are also required to adopt and submit SIPs to implement, maintain, and
enforce the NAAQS in designated nonattainment areas and throughout the
state.
When a nonattainment area has three years of complete, certified
air quality data that has been determined to attain the 1997 ozone
NAAQS, and the area has met other required criteria described in
section 107(d)(3)(E) of the CAA, the state can submit to EPA a request
to be redesignated to attainment, referred to as a ``maintenance
area''.\2\ One of the criteria for redesignation is to have an approved
maintenance plan under CAA section 175A. The maintenance plan must
demonstrate that the area will continue to maintain the standard for
the period extending 10 years after redesignation, and it must contain
such additional measures as necessary to ensure maintenance and such
contingency provisions as necessary to assure that violations of the
standard will be promptly corrected. At the end of the eighth year
after the effective date of the redesignation, the state must also
submit a second maintenance plan to ensure ongoing maintenance of the
standard for an additional 10 years. CAA section 175A.
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\2\ Section 107(d)(3)(E) of the CAA sets out the requirements
for redesignation. They include attainment of the NAAQS, full
approval under section 110(k) of the applicable SIP, determination
that improvement in air quality is a result of permanent and
enforceable reductions in emissions, demonstration that the state
has met all applicable section 110 and part D requirements, and a
fully approved maintenance plan under CAA section 175A.
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EPA has published long-standing guidance for states on developing
maintenance plans.\3\ The Calcagni Memorandum provides that states may
generally demonstrate maintenance by either performing air quality
modeling to show that the future mix of sources and emission rates will
not cause a violation of the NAAQS or by showing that future emissions
of a pollutant and its precursors will not exceed the level of
emissions during a year when the area was attaining the NAAQS (i.e.,
attainment year inventory). See Calcagni Memorandum at 9.
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\3\ ``Procedures for Processing Requests to Redesignate Areas to
Attainment,'' Memorandum from John Calcagni, Director, Air Quality
Management Division, September 4, 1992 (the ``Calcagni
Memorandum'').
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On June 12, 2007, WDNR submitted a request to EPA to redesignate
Kewaunee County to attainment for the 1997 ozone NAAQS. This submittal
included a plan to maintain the 1997 ozone NAAQS in Kewaunee County
through 2018 as a revision to the Wisconsin SIP. EPA approved the
Kewaunee County maintenance plan and the state's request to redesignate
the area to attainment for the 1997 ozone NAAQS on May 21, 2008 (73 FR
29436).
On September 11, 2009, WDNR submitted a request to redesignate Door
County and Manitowoc County to attainment for the 1997 ozone NAAQS.
This submittal included a plan to maintain the 1997 ozone NAAQS in Door
County and Manitowoc County through 2020 as a revision to the Wisconsin
SIP. EPA approved the Door County and Manitowoc County maintenance
plans and the state's request to redesignate the areas to attainment
for the 1997 ozone NAAQS on July 12, 2010 (75 FR 39635).
On September 11, 2009, WDNR submitted a request to redesignate the
Milwaukee-Racine area to attainment for the 1997 ozone NAAQS.\4\ This
submittal included a plan to maintain the 1997 ozone NAAQS in the
Milwaukee-Racine area through 2022 as a revision to the Wisconsin SIP.
EPA approved the Milwaukee-Racine area maintenance plan and the state's
request to redesignate the area to attainment for the 1997 ozone NAAQS
on July 31, 2012 (77 FR 45252).
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\4\ WDNR supplemented the submittal on November 16, 2011.
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Under CAA section 175A(b), states must submit a revision to the
first maintenance plan eight years after redesignation to provide for
maintenance of the NAAQS for ten additional years following the end of
the first 10-year period. EPA's final implementation rule for the 2008
ozone NAAQS revoked the 1997 ozone NAAQS and stated that one
[[Page 16592]]
consequence of revocation was that areas that had been redesignated to
attainment (i.e., maintenance areas) for the 1997 standard no longer
needed to submit second 10-year maintenance plans under CAA section
175A(b).\5\ In South Coast Air Quality Management District v. EPA
(South Coast II), the D.C. Circuit vacated EPA's interpretation that,
because of the revocation of the 1997 ozone standard, second
maintenance plans were not required for ``orphan maintenance areas,''
i.e., areas designated attainment for the 2008 NAAQS but nonattainment
for the 1997 NAAQS. South Coast, 882 F.3d 1138 (D.C. Cir. 2018). Thus,
states with these ``orphan maintenance areas'' under the 1997 ozone
NAAQS must submit maintenance plans for the second maintenance period.
Accordingly, on December 13, 2019, WDNR submitted a second maintenance
plan which shows attainment of the 1997 ozone NAAQS for: Kewaunee
County through 2028; Door County and Manitowoc County through 2030; and
the Milwaukee-Racine area through 2032, i.e., through the end of the
full 20-year maintenance period for each of the areas.
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\5\ See 80 FR 12315 (March 6, 2015).
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III. EPA's Evaluation of WDNR's SIP Submittal
A. Second Maintenance Plan
Section 175A of the CAA sets forth the elements of a maintenance
plan for areas seeking redesignation from nonattainment to attainment.
Under section 175A, the maintenance plan must demonstrate continued
attainment of the NAAQS for at least 10 years after the Administrator
approves a redesignation to attainment. Eight years after the
redesignation, the state must submit a revised maintenance plan which
demonstrates that attainment of the NAAQS will continue for an
additional 10 years beyond the initial 10-year maintenance period. To
address the possibility of future NAAQS violations, the maintenance
plan must contain contingency measures, as EPA deems necessary, to
assure prompt correction of the future NAAQS violation.
The Calcagni Memorandum provides further guidance on the content of
a maintenance plan, explaining that a maintenance plan should address
five elements: (1) An attainment emission inventory; (2) a maintenance
demonstration; (3) a commitment for continued air quality monitoring;
(4) a process for verification of continued attainment; and (5) a
contingency plan.
On December 13, 2019, WDNR submitted, as a SIP revision, plans to
provide for maintenance of the 1997 ozone standard in: The Kewaunee
County area through 2028, the Door County and Manitowoc County areas
through 2030, and the Milwaukee-Racine area through 2032, each
respectively more than 20 years after the effective date of the
redesignation to attainment. As discussed below, EPA proposes to find
that WDNR's second maintenance plans include the necessary components
and to approve the maintenance plans as revisions to the Wisconsin SIP.
1. Attainment Inventory
a. Kewaunee County
The CAA section 175A maintenance plan approved by EPA for the first
10-year period included an attainment inventory for the Kewaunee County
area that reflects typical summer day VOC and NOX emissions
in 2005. This inventory is summarized in Table 1 below.
Table 1--Kewaunee County Typical Summer Day VOC and NOX Emissions for
Attainment Year 2005 in Tons per Day
[tpd]
------------------------------------------------------------------------
Source category VOC NOX
------------------------------------------------------------------------
Nonroad................................. 1.6 1.7
Onroad.................................. 0.6 1.2
Point................................... 0.2 0.01
Area.................................... 1.3 0.1
-------------------------------
Total............................... 3.7 3.0
------------------------------------------------------------------------
In addition, because the Kewaunee County area continued to monitor
attainment of the 1997 ozone NAAQS in 2014, this is also an appropriate
year to use for an attainment year inventory. WDNR is using 2014 summer
day emissions from the EPA 2014 version 7.0 modeling platform as the
basis for the attainment inventory presented in Table 2 below.\6\ These
data are based on the most recently available National Emissions
Inventory (2014 NEI version 2).
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\6\ The inventory documentation for this platform can be found
here: https://www.epa.gov/air-emissions-modeling/2014-version-70-platform.
Table 2--Kewaunee County Typical Summer Day VOC and NOX Emissions for
Attainment Year 2014
[tpd]
------------------------------------------------------------------------
Source category VOC NOX
------------------------------------------------------------------------
Nonroad................................. 1.01 0.91
Onroad.................................. 0.48 0.91
Point................................... 0.16 0.14
Area.................................... 0.90 0.65
-------------------------------
Total............................... 2.54 2.61
------------------------------------------------------------------------
[[Page 16593]]
b. Door County and Manitowoc County
The CAA section 175A maintenance plan approved by EPA for the first
10-year period included an attainment inventory for the Door County and
Manitowoc County areas that reflects typical summer day VOC and
NOX emissions in 2007. This inventory is summarized in Table
3 below.
Table 3--Door County and Manitowoc County Typical Summer Day VOC and NOX Emissions for Attainment Year 2007 in
Tons per Day
[tpd]
----------------------------------------------------------------------------------------------------------------
Door county Manitowoc county
Source category ---------------------------------------------------------------
VOC NOX VOC NOX
----------------------------------------------------------------------------------------------------------------
Nonroad......................................... 8.85 5.28 3.15 3.61
Onroad.......................................... 0.93 1.97 2.24 5.38
Point........................................... 0.30 0.002 1.43 3.13
Area............................................ 1.51 0.20 4.39 0.43
---------------------------------------------------------------
Total....................................... 11.59 7.452 11.21 12.55
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In addition, because the Door County and Manitowoc County areas
continued to monitor attainment of the 1997 ozone NAAQS in 2014, this
is also an appropriate year to use for an attainment year inventory.
WDNR is using 2014 summer day emissions from the EPA 2014 version 7.0
modeling platform as the basis for the attainment inventory presented
in Table 4 below.\7\ These data are based on the most recently
available National Emissions Inventory (2014 NEI version 2).
---------------------------------------------------------------------------
\7\ The inventory documentation for this platform can be found
here: https://www.epa.gov/air-emissions-modeling/2014-version-70-platform.
Table 4--Door County and Manitowoc County Typical Summer Day VOC and NOX Emissions for Attainment Year 2014
[tpd]
----------------------------------------------------------------------------------------------------------------
Door county Manitowoc county
Source category ---------------------------------------------------------------
VOC NOX VOC NOX
----------------------------------------------------------------------------------------------------------------
Nonroad......................................... 5.82 3.53 1.91 2.00
Onroad.......................................... 0.91 1.70 1.78 3.83
Point........................................... 0.22 0.02 1.27 2.23
Area............................................ 1.17 1.97 3.23 1.74
---------------------------------------------------------------
Total....................................... 8.12 7.23 8.2 9.80
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c. Milwaukee-Racine Area
The CAA section 175A maintenance plan approved by EPA for the first
10-year period included an attainment inventory for the Milwaukee-
Racine area that reflects typical summer day VOC and NOX
emissions in 2008. This inventory is summarized in Tables 5 and 6
below.
Table 5--Milwaukee-Racine Area Typical Summer Day VOC and NOX Emissions
for Attainment Year 2008 in Tons per Day
[tpd]
------------------------------------------------------------------------
Milwaukee-Racine area
Source category -------------------------------
VOC NOX
------------------------------------------------------------------------
Nonroad................................. 50.02 45.34
Onroad.................................. 36.35 92.74
Point................................... 12.17 39.16
Area.................................... 57.22 14.76
-------------------------------
Total............................... 155.76 192.00
------------------------------------------------------------------------
[[Page 16594]]
Table 6--Milwaukee-Racine Area Typical Summer Day VOC and NOX Emissions by County for Attainment Year 2008
[tpd]
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Kenosha county Milwaukee county Ozaukee county Racine county Washington county Waukesha county
Source category -----------------------------------------------------------------------------------------------------------------------------------
VOC NOX VOC NOX VOC NOX VOC NOX VOC NOX VOC NOX
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad..................................................... 4.57 3.94 12.90 15.83 2.17 4.66 6.23 4.99 5.39 4.10 18.76 11.82
Onroad...................................................... 3.05 7.52 16.05 41.68 2.13 5.47 3.51 8.79 2.97 7.62 8.64 21.66
Point....................................................... 1.33 8.56 5.52 26.91 0.42 0.73 1.41 1.13 0.49 0.26 3.00 1.57
Area........................................................ 3.39 0.76 21.19 6.85 3.99 0.89 6.17 1.27 9.97 1.23 12.51 3.76
-----------------------------------------------------------------------------------------------------------------------------------
Total................................................... 12.34 20.78 55.66 91.27 8.71 11.75 17.32 16.18 18.82 13.21 42.91 38.81
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In addition, because the Milwaukee-Racine area continued to monitor
attainment of the 1997 ozone NAAQS in 2014, this is also an appropriate
year to use for an attainment year inventory. WDNR is using 2014 summer
day emissions from the EPA 2014 version 7.0 modeling platform as the
basis for the attainment inventory presented in Tables 7 and 8
below.\8\ These data are based on the most recently available National
Emissions Inventory (2014 NEI version 2).
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\8\ The inventory documentation for this platform can be found
here: https://www.epa.gov/air-emissions-modeling/2014-version-70-platform.
Table 7--Milwaukee-Racine Area Typical Summer Day VOC and NOX Emissions
for Attainment Year 2014
[tpd]
------------------------------------------------------------------------
Milwaukee-Racine area
Source category -------------------------------
VOC NOX
------------------------------------------------------------------------
Nonroad................................. 26.87 24.36
Onroad.................................. 26.60 55.87
Point................................... 10.33 28.90
Area.................................... 53.28 20.97
-------------------------------
Total............................... 117.08 130.09
------------------------------------------------------------------------
Table 8--Milwaukee-Racine Area Typical Summer Day VOC and NOX Emissions by County for Attainment Year 2014
[tpd]
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Kenosha county Milwaukee county Ozaukee county Racine county Washington county Waukesha county
Source category -----------------------------------------------------------------------------------------------------------------------------------
VOC NOX VOC NOX VOC NOX VOC NOX VOC NOX VOC NOX
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad..................................................... 2.48 2.06 6.72 7.55 1.23 2.94 3.34 2.69 2.96 2.13 10.14 7.00
Onroad...................................................... 2.33 4.80 11.40 23.70 1.55 3.36 2.57 5.44 2.37 5.49 6.39 13.09
Point....................................................... 0.53 7.89 5.10 17.66 0.34 0.89 1.20 0.77 0.77 0.39 2.39 1.30
Area........................................................ 4.29 2.15 24.08 8.30 2.28 1.34 5.71 2.75 4.26 1.72 12.66 4.72
-----------------------------------------------------------------------------------------------------------------------------------
Total................................................... 9.63 16.89 47.30 57.20 5.40 8.53 12.81 11.65 10.37 9.72 31.57 26.10
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2. Maintenance Demonstration
a. Kewaunee County
WDNR is demonstrating maintenance through 2028 for the Kewaunee
County area by showing that future emissions of VOC and NOX
remain at or below attainment year emission levels. 2028 is an
appropriate maintenance year for Kewaunee County because it is more
than 10 years beyond the first 10-year maintenance period. The 2028
emissions inventory is projected from the EPA 2011 version 6.3 modeling
platform.\9\ The relevant inventory scenario names are ``2014fd'' and
``2028el.'' The 2028 scenario was used in past air quality modeling for
the regional haze program. The 2028 summer day emissions inventory for
Kewaunee County is summarized in Table 9 below. Table 10 documents
changes in NOX and VOC emissions in Kewaunee County between
2005, 2014 and 2028.
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\9\ The inventory documentation for this platform can be found
here: https://www.epa.gov/air-emissions-modeling/2011-version-63-platform.
Table 9--Kewaunee County Typical Summer Day VOC and NOX Emissions for
Maintenance Year 2028
[tpd]
------------------------------------------------------------------------
Source category VOC NOX
------------------------------------------------------------------------
Nonroad................................. 0.47 0.49
Onroad.................................. 0.14 0.19
Point................................... 0.18 0.11
[[Page 16595]]
Area.................................... 1.00 0.10
-------------------------------
Total............................... 1.78 0.89
------------------------------------------------------------------------
Table 10--Change in Typical Summer Day VOC and NOX Emissions in Kewaunee County Between 2005, 2014, and 2028
[tpd]
--------------------------------------------------------------------------------------------------------------------------------------------------------
VOC NOX
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Source category Net change Net change Net change Net change
2005 2014 2028 (2005-2028) (2014-2028) 2005 2014 2028 (2005-2028) (2014-2028)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad....................... 1.6 1.01 0.47 -1.13 -0.54 1.7 0.91 0.49 -1.21 -0.42
Onroad........................ 0.6 0.48 0.14 -0.46 -0.34 1.2 0.91 0.19 -1.01 -0.72
Point......................... 0.2 0.16 0.18 -0.02 0.02 0.01 0.14 0.11 0.1 -0.03
Area.......................... 1.3 0.90 1.00 -0.3 0.1 0.1 0.65 0.10 0 -0.55
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Total..................... 3.7 2.54 1.78 -1.92 -0.76 3.0 2.61 0.89 -2.11 -1.72
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In summary, the maintenance demonstration for the Kewaunee County
area shows maintenance of the 1997 ozone standard by providing
emissions information to support the demonstration that future
emissions of NOX and VOC will remain at or below 2014
emission levels when taking into account both future source growth and
implementation of future controls. Table 10 shows that VOC and
NOX emissions in Kewaunee County are projected to decrease
by 0.76 tpd and 1.72 tpd, respectively, between 2014 and 2028.
b. Door and Manitowoc
WDNR is demonstrating maintenance through 2030 for the Door County
and Manitowoc County areas by showing that future emissions of VOC and
NOX remain at or below attainment year emission levels. 2030
is an appropriate maintenance year for the Door County and Manitowoc
County areas because it is more than 10 years beyond the first 10-year
maintenance period. The 2030 emissions inventory is projected from the
EPA 2011 version 6.3 modeling platform.\10\ The relevant inventory
scenario names are ``2014fd'' and ``2028el.'' The 2028 scenario was
used in past air quality modeling for the regional haze program. WDNR
projected emissions from 2028 to 2030 for the Door County and Manitowoc
County areas based on EPA's 2028 emission inventory projections from
EPA's 6.3 modeling platform. WDNR projected that emissions for 2030
would remain at 2028 levels for the Door County and Manitowoc County
areas. WDNR's approach is conservative as emissions are expected to
further decrease from 2028 to 2030 due to decreases in mobile source
emissions through continued implementation of vehicle emissions
standard and vehicle fleet turn over. The 2030 summer day emissions
inventory for the Door County and Manitowoc County areas are summarized
in Table 11 below. Tables 12 and 13 document changes in NOX
and VOC emissions in Door County and Manitowoc County between 2007,
2014 and 2030.
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\10\ The inventory documentation for this platform can be found
here: https://www.epa.gov/air-emissions-modeling/2011-version-63-platform.
Table 11--Door County and Manitowoc County Typical Summer Day VOC and NOX Emissions for Maintenance Year 2030
[tpd]
----------------------------------------------------------------------------------------------------------------
Door county Manitowoc county
Source category ---------------------------------------------------------------
VOC NOX VOC NOX
----------------------------------------------------------------------------------------------------------------
Nonroad......................................... 2.70 2.45 1.05 1.10
Onroad.......................................... 0.28 0.39 0.65 1.39
Point........................................... 0.13 0.01 1.46 2.34
Area............................................ 1.39 0.25 3.89 0.54
---------------------------------------------------------------
Total....................................... 4.50 3.09 7.04 5.36
----------------------------------------------------------------------------------------------------------------
[[Page 16596]]
Table 12--Change in Typical Summer Day VOC and NOX Emissions in Door County Between 2007, 2014, and 2030
[tpd]
--------------------------------------------------------------------------------------------------------------------------------------------------------
Door county
-------------------------------------------------------------------------------------------------------------------------
VOC NOX
Source category -------------------------------------------------------------------------------------------------------------------------
Net change Net change Net change Net change
2007 2014 2030 (2007-2030) (2014-2030) 2007 2014 2030 (2007-2030) (2014-2030)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad....................... 8.85 5.82 2.7 -6.15 -3.12 5.28 3.53 2.45 -2.83 -1.08
Onroad........................ 0.93 0.91 0.28 -0.65 -0.63 1.97 1.7 0.39 -1.58 -1.31
Point......................... 0.3 0.22 0.13 -0.17 -0.09 0.002 0.02 0.01 0.008 -0.01
Area.......................... 1.51 1.17 1.39 -0.12 0.22 0.2 1.97 0.25 0.05 -1.72
-------------------------------------------------------------------------------------------------------------------------
Total..................... 11.59 8.12 4.5 -7.09 -3.62 7.452 7.23 3.09 -4.362 -4.14
--------------------------------------------------------------------------------------------------------------------------------------------------------
Table 13--Change in Typical Summer Day VOC and NOX Emissions in Manitowoc County Between 2007, 2014, and 2030
[tpd]
--------------------------------------------------------------------------------------------------------------------------------------------------------
Manitowoc county
-------------------------------------------------------------------------------------------------------------------------
VOC NOX
Source category -------------------------------------------------------------------------------------------------------------------------
Net change Net change Net change Net change
2007 2014 2030 (2007-2030) (2014-2030) 2007 2014 2030 (2007-2030) (2014-2030)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad....................... 3.15 1.91 1.05 -2.1 -0.86 3.61 2 1.1 -2.51 -0.9
Onroad........................ 2.24 1.78 0.65 -1.59 -1.13 5.38 3.83 1.39 -3.99 -2.44
Point......................... 1.43 1.27 1.46 0.03 0.19 3.13 2.23 2.34 -0.79 0.11
Area.......................... 4.39 3.23 3.89 -0.5 0.66 0.43 1.74 0.54 0.11 -1.2
-------------------------------------------------------------------------------------------------------------------------
Total..................... 11.21 8.2 7.04 -4.17 -1.16 12.55 9.8 5.36 -7.19 -4.44
--------------------------------------------------------------------------------------------------------------------------------------------------------
In summary, the maintenance demonstration for the Door County and
Manitowoc County areas shows maintenance of the 1997 ozone standard by
providing emissions information to support the demonstration that
future emissions of NOX and VOC will remain at or below 2014
emission levels when taking into account both future source growth and
implementation of future controls. Table 12 shows VOC and
NOX emissions in Door County are projected to decrease by
3.62 tpd and 4.14 tpd, respectively, between 2014 and 2030. Table 13
shows VOC and NOX emissions in Manitowoc County are
projected to decrease by 1.16 tpd and 4.44 tpd, respectively, between
2014 and 2030.
c. Milwaukee-Racine Area
WDNR is demonstrating maintenance through 2032 for the Milwaukee-
Racine area by showing that future emissions of VOC and NOX
remain at or below attainment year emission levels. 2032 is an
appropriate maintenance year for the Milwaukee-Racine area because it
is more than 10 years beyond the first 10-year maintenance period. The
2028 emissions inventory is projected from the EPA 2011 version 6.3
modeling platform.\11\ The relevant inventory scenario names are
``2014fd'' and ``2028el.'' The 2028 scenario was used in past air
quality modeling for the regional haze program. WDNR projected
emissions from 2028 to 2032 for Milwaukee-Racine area based on EPA's
2028 emission inventory projections from EPA's 6.3 modeling platform.
WDNR projected that emissions for 2032 would remain at 2028 levels for
Milwaukee-Racine area. WDNR's approach is conservative as emissions are
expected to further decrease from 2028 to 2032 due to decreases in
mobile source emissions through continued implementation of vehicle
emissions standard and vehicle fleet turn over. The 2032 summer day
emissions inventory for the Milwaukee-Racine area is summarized in
Tables 14 and 15 below. Table 16 documents changes in NOX
and VOC emissions in the Milwaukee-Racine area between 2008, 2014 and
2032.
---------------------------------------------------------------------------
\11\ The inventory documentation for this platform can be found
here: https://www.epa.gov/air-emissions-modeling/2011-version-63-platform.
Table 14--Milwaukee-Racine Area Typical Summer Day VOC and NOX Emissions
for Maintenance Year 2032
[tpd]
------------------------------------------------------------------------
Milwaukee-Racine area
Source category -------------------------------
VOC NOX
------------------------------------------------------------------------
Nonroad................................. 18.44 13.93
Onroad.................................. 9.98 19.52
Point................................... 9.69 17.80
Area.................................... 52.70 15.16
-------------------------------
Total............................... 90.81 66.41
------------------------------------------------------------------------
[[Page 16597]]
Table 15--Milwaukee-Racine Area Typical Summer Day VOC and NOX Emissions by County for Maintenance Year 2032
[tpd]
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Kenosha county Milwaukee county Ozaukee county Racine county Washington county Waukesha county
Source category -----------------------------------------------------------------------------------------------------------------------------------
VOC NOX VOC NOX VOC NOX VOC NOX VOC NOX VOC NOX
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Nonroad..................................................... 1.38 1.19 5.93 4.35 1.05 1.35 1.82 1.56 1.95 1.20 6.32 4.28
Onroad...................................................... 0.86 1.62 3.94 7.90 0.60 1.23 0.94 1.84 1.02 2.07 2.62 4.85
Point....................................................... 0.57 7.41 4.29 7.66 0.43 0.97 1.15 0.48 0.53 0.14 2.71 1.13
Area........................................................ 4.80 1.25 23.24 6.79 2.44 0.72 6.61 1.46 4.84 1.26 10.76 3.68
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Total................................................... 7.62 11.48 37.40 26.70 4.51 4.27 10.52 5.36 8.34 4.66 22.42 13.94
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Table 16--Change in Typical Summer Day VOC and NOX Emissions in Milwaukee-Racine Area Between 2008, 2014, and 2032
[tpd]
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Milwaukee-Racine area
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VOC NOX
Source category -------------------------------------------------------------------------------------------------------------------------
Net change Net change Net change Net change
2008 2014 2032 (2008-2032) (2014-2032) 2008 2014 2032 (2008-2032) (2014-2032)
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Nonroad....................... 50.02 26.87 18.44 -31.58 -8.43 45.34 24.36 13.93 -31.41 -10.43
Onroad........................ 36.35 26.6 9.98 -26.37 -16.62 92.74 55.87 19.52 -73.22 -36.35
Point......................... 12.17 10.33 9.69 -2.48 -0.64 39.16 28.9 17.8 -21.36 -11.1
Area.......................... 57.22 53.28 52.7 -4.52 -0.58 14.76 20.97 15.16 0.4 -5.81
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Total..................... 155.76 117.08 90.81 -64.95 -26.27 192 130.09 66.41 -125.59 -63.68
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In summary, the maintenance demonstration for the Milwaukee-Racine
area shows maintenance of the 1997 ozone standard by providing
emissions information to support the demonstration that future
emissions of NOX and VOC will remain at or below 2014
emission levels when taking into account both future source growth and
implementation of future controls. Table 16 shows that VOC and
NOX emissions in Milwaukee-Racine area are projected to
decrease by 26.27 tpd and 63.68 tpd, respectively, between 2014 and
2032.
3. Continued Air Quality Monitoring
WDNR commits to continue to operate an approved ozone monitoring
network in Kewaunee County, Door County, Manitowoc County and the
Milwaukee-Racine area. WDNR commits to consult with EPA prior to making
changes to the existing monitoring network should changes become
necessary in the future. WDNR remains obligated to meet monitoring
requirements and continue to quality assure monitoring data in
accordance with 40 CFR part 58, and to enter all data into the Air
Quality System (AQS) in accordance with Federal guidelines.
4. Verification of Continued Attainment
WDNR has the legal authority to enforce and implement the
requirements of the maintenance plans for Kewaunee County, Door County,
Manitowoc County and the Milwaukee-Racine area. This includes the
authority to adopt, implement, and enforce any subsequent emission
control measures determined to be necessary to correct future ozone
attainment problems.
Verification of continued attainment is accomplished through
operation of the ambient ozone monitoring network and the periodic
update of the area's emissions inventory. WDNR will continue to operate
an approved ozone monitoring network in Kewaunee County, Door County,
Manitowoc County and the Milwaukee-Racine area. There are no plans to
discontinue operation, relocate, or otherwise change the existing ozone
monitoring network other than through revisions to the Wisconsin
Monitoring Network Plan approved by EPA.
In addition, to track future levels of emissions, WDNR will
continue to develop and submit to EPA updated emission inventories for
all source categories at least once every three years, consistent with
the requirements of 40 CFR part 51, subpart A, and in 40 CFR 51.122.
The Consolidated Emissions Reporting Rule (CERR) was promulgated by EPA
on June 10, 2002 (67 FR 39602). The CERR was replaced by the Annual
Emissions Reporting Requirements (AERR) on December 17, 2008 (73 FR
76539).
5. Contingency Plan
Section 175A of the CAA requires that the state must adopt a
maintenance plan, as a SIP revision, that includes such contingency
measures as EPA deems necessary to assure that the state will promptly
correct a violation of the NAAQS that occurs after redesignation of the
area to attainment of the NAAQS. The maintenance plan must identify:
The contingency measures to be considered and, if needed for
maintenance, adopted and implemented; a schedule and procedure for
adoption and implementation; and, a time limit for action by the state.
The state should also identify specific indicators to be used to
determine when the contingency measures need to be considered, adopted,
and implemented. The maintenance plan must include a commitment that
the state will implement all measures with respect to the control of
the pollutant that were contained in the SIP before redesignation of
the area to attainment in accordance with section 175A(d) of the CAA.
As required by section 175A of the CAA, WDNR has adopted
contingency plans for Kewaunee County, Door County, Manitowoc County
and the Milwaukee-Racine area to address possible future ozone air
quality problems. The contingency plans adopted by WDNR have two levels
of response: A warning level response and an action level response.
In WDNR's plans, a warning level response will be triggered when an
annual fourth high monitored value higher than the NAAQS is monitored
within the maintenance area. A warning level response will consist of
WDNR
[[Page 16598]]
conducting a study to determine whether the ozone value indicates a
trend toward higher ozone values and whether emissions are
significantly higher than projected in the maintenance plan. The study
will evaluate whether the actual emissions have deviated significantly
from the emissions projections contained in the maintenance plan for
the nonattainment areas, along with an evaluation of which sectors and
states are responsible for any emissions increases. The study will also
assess whether unusual meteorological conditions during the high-ozone
year led to the high monitored ozone concentrations. The study will
evaluate whether the trend, if any, is likely to continue and, if so,
the control measures necessary to reverse the trend. The study will
consider ease and timing of implementation as well as economic and
social impacts. The study findings will be completed no later than the
beginning of the following summer ozone control period (May 1).
Implementation of necessary controls in response to a warning level
response trigger will follow the procedures for control selection and
implementation outlined under the action level response.
In WDNR's plans, an action level response is triggered when a
three-year design value exceeding the level of the 1997 ozone NAAQS is
monitored within the maintenance area. In the event that the action
level is triggered and is not found to be due to an exceptional event,
malfunction, or noncompliance with a permit condition or rule
requirement, WDNR, in conjunction with the metropolitan planning
organization or regional council of governments, will determine what
additional control measures are needed to ensure future attainment of
the ozone standard. Control measures selected will be adopted and
implemented within 18 months of the certification of the monitoring
data that triggered the action level response. WDNR may also consider
if significant new regulations not currently included as part of the
maintenance provisions will be implemented in a timely manner and would
thus constitute an adequate contingency measure response.
WDNR included the following list of potential contingency measures
in its maintenance plans:
1. Implementation of any federally promulgated rule regulating
transport of ozone precursors;
2. Updated Federal NOX emission limits for heavy-duty
vehicles;
3. Updated (Phase 2) Federal fuel efficiency standards for medium
and heavy-duty engines and vehicles;
4. New Federal regulations on the sale of aftermarket catalysts for
vehicle catalytic converters;
5. Anti-idling control program for mobile sources, targeting diesel
vehicles;
6. Diesel exhaust retrofits;
7. Traffic flow improvements;
8. Park and ride facilities;
9. Rideshare/carpool program;
10. Expansion of the vehicle emissions testing program.
EPA has concluded that the maintenance plans adequately addresses
the five basic components of a maintenance plan required under Section
175A of the CAA: Attainment inventory, maintenance demonstration,
monitoring network, verification of continued attainment, and a
contingency plan. Thus, EPA proposes to find that the maintenance plans
SIP revision submitted by WDNR for Kewaunee County, Door County,
Manitowoc County and the Milwaukee-Racine area meet the requirements of
section 175A of the CAA.
B. 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 176(c)(1)(B)). EPA's
conformity rule at 40 CFR part 93 requires that transportation plans,
programs and projects conform to SIPs and establish the criteria and
procedures for determining whether they conform. The conformity rule
generally requires a demonstration that emissions from the Regional
Transportation Plan and the Transportation Improvement Program (TIP)
are consistent with the motor vehicle emissions budget (MVEB) contained
in the control strategy SIP revision or maintenance plan (40 CFR
93.101, 93.118, and 93.124). A MVEB is defined as ``that portion of the
total allowable emissions defined in the submitted or approved control
strategy implementation plan revision or maintenance plan for a certain
date for the purpose of meeting reasonable further progress milestones
or demonstrating attainment or maintenance of the NAAQS, for any
criteria pollutant or its precursors, allocated to highway and transit
vehicle use and emissions (40 CFR 93.101).''
EPA's current transportation conformity regulation requires a
regional emissions analysis only during the time period beginning one
year after a nonattainment designation for a particular NAAQS until the
effective date of revocation of that NAAQS (40 CFR 93.109(c)).
Therefore, pursuant to the conformity regulation, a regional emissions
analysis using MVEBs is not required for conformity determinations for
the 1997 ozone NAAQS because that NAAQS has been revoked (80 FR 12264).
As no regional emissions analysis is required for Kewaunee County, Door
County, Manitowoc County or the Milwaukee-Racine area, transportation
conformity for the 1997 ozone NAAQS can be demonstrated by a
Metropolitan Planning Organization and Department of Transportation for
transportation plans and TIPs by showing that the remaining criteria
contained in Table 1 in 40 CFR 93.109, and 40 CFR 93.108 have been met.
IV. Proposed Action
Under sections 110(k) and 175A of the CAA and for the reasons set
forth above, EPA is proposing to approve the Kewaunee County, Door
County and Manitowoc County, and the Milwaukee-Racine area second
maintenance plans for the 1997 Ozone NAAQS, submitted by WDNR on
December 13, 2019, as a revision to the Wisconsin SIP. These second
maintenance plans are designed to keep the Kewaunee County area in
attainment of the 1997 ozone NAAQS through 2028, Door County and
Manitowoc County in attainment of the 1997 ozone NAAQS though 2030, and
the Milwaukee-Racine area in attainment of the 1997 ozone NAAQS through
2032.
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
proposed 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 proposed action:
Is not a significant regulatory action subject to review
by the Office of Management and Budget under Executive Orders 12866 (58
FR 51735, October 4, 1993) and 13563 (76 FR 3821, January 21, 2011);
Is not an Executive Order 13771 (82 FR 9339, February 2,
2017) regulatory action because SIP approvals are exempted under
Executive Order 12866;
Does not impose an information collection burden under the
provisions
[[Page 16599]]
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 disproportionate human health or environmental effects with
practical, appropriate, 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, Nitrogen oxides, Ozone,
Reporting and recordkeeping requirements, Volatile organic compounds.
Dated: March 10, 2020.
Cheryl Newton,
Deputy Regional Administrator, Region 5.
[FR Doc. 2020-05960 Filed 3-23-20; 8:45 am]
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