[Federal Register Volume 87, Number 21 (Tuesday, February 1, 2022)]
[Proposed Rules]
[Pages 5438-5450]
[FR Doc No: 2022-01943]

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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Parts 52 and 81

[EPA-R05-OAR-2020-0410; EPA-R05-OAR-2021-0141; FRL-9484-01-R5]

Air Plan Approval; Wisconsin; Redesignation of the Manitowoc,
Wisconsin Area to Attainment of the 2015 Ozone Standard

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: The Environmental Protection Agency (EPA) is proposing to find
that the Manitowoc, Wisconsin area is attaining the 2015 ozone National
Ambient Air Quality Standard (NAAQS or standard) and to act in
accordance with a request from the Wisconsin Department of Natural
Resources (WDNR) to redesignate the area to attainment for the 2015
ozone NAAQS, because the request meets the statutory requirements for
redesignation under the Clean Air Act (CAA). Also, EPA is proposing to
approve WDNR's certification that its stationary annual emissions
statement regulation, which has been previously approved by EPA under a
prior ozone standard, satisfies the CAA emission statement rule
requirement for the 2015 ozone standard. WDNR submitted these requests
on August 3, 2020 and October 29, 2021. EPA is also proposing to
approve, as a revision to the Wisconsin State Implementation Plan
(SIP), the State's plan for maintaining the 2015 ozone NAAQS through
2033 in the Manitowoc area. EPA also finds adequate and is proposing to
approve Wisconsin's 2025 and 2033 volatile organic compound (VOC) and
oxides of nitrogen (NOX) Motor Vehicle Emission Budgets
(MVEBs) for the Manitowoc area. Finally, these revisions satisfy the
emissions inventory requirements for the partial Manitowoc area under
the 2015 ozone NAAQS. The CAA requires emission inventories for all
areas that were designated nonattainment.

DATES: Comments must be received on or before March 3, 2022.

ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R05-
OAR-2020-0410 and EPA-R05-OAR-2021-0141 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. For either manner of submission, EPA may publish any
comment received to its public docket. Do not submit electronically any
information you consider to be Confidential Business Information (CBI)
or other information whose disclosure is restricted by statute.
Multimedia submissions (audio, video, etc.) must be accompanied by a
written comment. The written comment is considered the official comment
and should include discussion of all points you wish to make. EPA will
generally not consider comments or comment contents located outside of
the primary submission (i.e. on the web, cloud, or other file sharing
system). For additional submission methods, please contact the person
identified in the FOR FURTHER INFORMATION CONTACT section. For the full
EPA public comment policy, information about CBI or multimedia
submissions, and general guidance on making effective comments, please
visit https://www2.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,<PHONE_NUMBER>, [email protected].

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

I. What is EPA proposing?
II. What is the background for these actions?
III. What are the criteria for redesignation?
IV. What is EPA's analysis of WDNR's redesignation request?
    A. Has the Manitowoc area attained the 2015 ozone NAAQS?
    B. Has WDNR met all applicable requirements of section 110 and
part D of the CAA for the Manitowoc area, and does Wisconsin have a
fully approved SIP for the area under section 110(k) of the CAA?
    C. Are the air quality improvements in the Manitowoc area due to
permanent and enforceable emission reductions?
    D. Does WDNR have a fully approvable ozone maintenance plan for
the Manitowoc area?
V. Has the state adopted approvable motor vehicle emission budgets?
    A. Motor Vehicle Emission Budgets
    B. What is the status of EPA's adequacy determination for the
proposed VOC and NOX MVEBs for the Manitowoc area?
    C. What is a safety margin?
VI. Emissions Statement and Inventories
    A. Emissions Statement
    B. Emissions Inventories
VII. Proposed Actions
VIII. Statutory and Executive Order Reviews

I. What is EPA proposing?

    EPA is proposing to take several related actions. EPA is proposing
to determine that the Manitowoc nonattainment area is attaining the
2015 ozone NAAQS, based on quality-assured and certified monitoring
data for 2018-2020, and that this area has met the requirements for
redesignation under section 107(d)(3)(E) of the CAA. EPA is thus
proposing to change the legal designation of the Manitowoc area from
nonattainment to attainment for the 2015 ozone NAAQS. EPA is also
proposing to approve, as a revision to the Wisconsin SIP, the State's
maintenance plan (such approval being one of the CAA criteria for
redesignation to attainment status) for the area. The maintenance plan
is designed to keep the Manitowoc area in attainment of the 2015 ozone
NAAQS through 2033. EPA also finds adequate and is proposing to approve
the newly-established 2025 and 2033 MVEBs for the Manitowoc area.
Finally, EPA is proposing to approve WDNR's stationary annual emissions
statement regulation and base year emissions inventory for the
Manitowoc area.

II. What is the background for these actions?

    EPA has determined that ground-level ozone is detrimental to human
health. On October 1, 2015, EPA promulgated a revised 8-hour ozone
NAAQS of 0.070 parts per million (ppm). See 80 FR 65292 (October 26,
2015). Under EPA's regulations at 40 CFR part 50, the 2015 ozone NAAQS
is attained in an area when the 3-year average of the annual fourth
highest daily maximum 8-hour average concentration is equal to or less
than 0.070 ppm, when truncated after the thousandth decimal place, at
all ozone monitoring sites in the area. See 40 CFR 50.19 and appendix U
to 40 CFR part 50.
    Upon promulgation of a new or revised NAAQS, section 107(d)(1)(B)
of the CAA requires EPA to designate as nonattainment any areas that
are violating the NAAQS, based on the most recent three years of
quality assured ozone monitoring data. The Manitowoc area was
originally designated as a marginal nonattainment area for the 2015
ozone NAAQS on June 4, 2018 (83 FR 25776) (effective August 3, 2018).
On June 14, 2021, EPA published a final rule revising the 2015 ozone
NAAQS designations for 13 counties, including Manitowoc County (86 FR
31438). EPA's revised designations expanded the nonattainment area in
Manitowoc County to include a larger part of the county's shoreline
area. WDNR's October 29, 2021 submittal included revised emissions
inventories and a redesignation request for the expanded geographic
boundaries of the Manitowoc County nonattainment area that reflects the
changes EPA made to the area in June 2021.

III. What are the criteria for redesignation?

    Section 107(d)(3)(E) of the CAA allows redesignation of an area to
attainment of the NAAQS provided that: (1) The Administrator (EPA)
determines that the area has attained the NAAQS; (2) the Administrator
has fully approved the applicable implementation plan for the area
under section 110(k) of the CAA; (3) the Administrator determines that
the improvement in air quality is due to permanent and enforceable
reductions in emissions resulting from implementation of the applicable
SIP, applicable Federal air pollutant control regulations, and other
permanent and enforceable emission reductions; (4) the Administrator
has fully approved a maintenance plan for the area as meeting the
requirements of section 175A of the CAA; and (5) the state containing
the area has met all requirements applicable to the area for the
purposes of redesignation under section 110 and part D of the CAA.
    On April 16, 1992, EPA provided guidance on redesignations in the
General Preamble for the Implementation of Title I of the CAA
Amendments of 1990 (57 FR 13498) and supplemented this guidance on
April 28, 1992 (57 FR 18070). EPA has provided further guidance on
processing redesignation requests in the following documents:

    1. ``Ozone and Carbon Monoxide Design Value Calculations,''
Memorandum from Bill Laxton, Director, Technical Support Division,
June 18, 1990;
    2. ``Maintenance Plans for Redesignation of Ozone and Carbon
Monoxide Nonattainment Areas,'' Memorandum from G.T. Helms, Chief,
Ozone/Carbon Monoxide Programs Branch, April 30, 1992;
    3. ``Contingency Measures for Ozone and Carbon Monoxide (CO)
Redesignations,'' Memorandum from G.T. Helms, Chief, Ozone/Carbon
Monoxide Programs Branch, June 1, 1992;
    4. ``Procedures for Processing Requests to Redesignate Areas to
Attainment,'' Memorandum from John Calcagni, Director, Air Quality
Management Division, September 4, 1992 (the ``Calcagni
Memorandum'');
    5. ``State Implementation Plan (SIP) Actions Submitted in
Response to Clean Air Act (CAA) Deadlines,'' Memorandum from John
Calcagni, Director, Air Quality Management Division, October 28,
1992;
    6. ``Technical Support Documents (TSDs) for Redesignation of
Ozone and Carbon Monoxide (CO) Nonattainment Areas,'' Memorandum
from G.T. Helms, Chief, Ozone/Carbon Monoxide Programs Branch,
August 17, 1993;
    7. ``State Implementation Plan (SIP) Requirements for Areas
Submitting Requests for Redesignation to Attainment of the Ozone and
Carbon Monoxide (CO) National Ambient Air Quality Standards (NAAQS)
On or After November 15, 1992,'' Memorandum from Michael H. Shapiro,
Acting Assistant Administrator for Air and Radiation, September 17,
1993;
    8. ``Use of Actual Emissions in Maintenance Demonstrations for
Ozone and CO Nonattainment Areas,'' Memorandum from D. Kent Berry,
Acting Director, Air Quality Management Division, November 30, 1993;
    9. ``Part D New Source Review (Part D NSR) Requirements for
Areas Requesting Redesignation to Attainment,'' Memorandum from Mary
D. Nichols, Assistant Administrator for Air and Radiation, October
14, 1994; and
    10. ``Reasonable Further Progress, Attainment Demonstration, and
Related Requirements for Ozone Nonattainment Areas Meeting the Ozone
National Ambient Air Quality Standard,'' Memorandum from John S.
Seitz, Director, Office of Air Quality Planning and Standards, May
10, 1995.

IV. What is EPA's analysis of WDNR's redesignation request?

A. Has the Manitowoc area attained the 2015 ozone NAAQS?

    For redesignation of a nonattainment area to attainment, the CAA
requires EPA to determine that the area has attained the applicable
NAAQS (CAA section 107(d)(3)(E)(i)). An area is attaining the 2015
ozone NAAQS if it meets the 2015 ozone NAAQS, as determined in
accordance with 40 CFR 50.15 and appendix U of part 50, based on three
complete, consecutive calendar years of quality-assured air quality
data for all monitoring sites in the area. To attain the NAAQS, the 3-
year average of the annual fourth-highest daily maximum 8-hour average
ozone concentrations (ozone design values) at each monitor must not
exceed 0.070 ppm. The air quality data must be collected and quality-
assured in accordance with 40 CFR part 58 and recorded in EPA's Air
Quality System (AQS). Ambient air quality monitoring data for the 3-
year period must also meet data completeness requirements. An ozone
design value is valid if daily maximum 8-hour average concentrations
are available for at least 90% of the days within the ozone monitoring
seasons,\1\ on average, for the 3-year period, with a minimum data
completeness of 75% during the ozone

monitoring season of any year during the 3-year period. See section 4
of appendix U to 40 CFR part 50.
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    \1\ The ozone season is defined by the state in 40 CFR 58
appendix D. The ozone season for Wisconsin is March-October 15. See
80 FR 65292, 65466-67 (October 26, 2015).
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    EPA has reviewed the available ozone monitoring data from
monitoring sites in the Manitowoc area for the 2018-2020 period
submitted with this request, in addition to the more recent 2019-2021
period. These data have been quality-assured, are recorded in the AQS,
and have been certified. These data demonstrate that the Manitowoc area
is attaining the 2015 ozone NAAQS. The annual fourth-highest 8-hour
ozone concentrations and the 3-year average of these concentrations
(monitoring site ozone design values) for each monitoring site are
summarized in Table 1.

  Table 1--Annual Fourth High Daily Maximum 8-Hour Ozone Concentrations and 3-Year Average of the Fourth High Daily Maximum 8-Hour Ozone Concentrations
                                                                 for the Manitowoc Area
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                                                                                Fourth high      2018-2020       2019-2021
                 County                              Monitor                   Year         % Observed         (ppm)       average (ppm)   average (ppm)
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Manitowoc..............................  55-071-0007....................            2018              99           0.076           0.070           0.068
                                                                                2019              99           0.066
                                                                                2020              92           0.069
                                                                                2021              99           0.070
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    The Manitowoc area's 3-year ozone design value for 2018-2020 is
0.070 ppm \2\ and 0.068 for the 2019-2021 period, both which meet the
2015 ozone NAAQS. Therefore, in this action, EPA proposes to determine
that the Manitowoc area is attaining the 2015 ozone NAAQS.
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    \2\ The monitor ozone design value for the monitor with the
highest 3-year averaged concentration.
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    If the design value of a monitoring site in the area violates the
NAAQS after proposal but prior to final approval of the redesignation,
EPA will not take final action to determine that the Manitowoc area is
attaining the NAAQS or to approve the redesignation of this area. As
discussed in section IV.D.3. below, WDNR has committed to continue
monitoring ozone in this area to verify maintenance of the 2015 ozone
NAAQS.

B. Has WDNR met all applicable requirements of section 110 and part D
of the CAA for the Manitowoc area, and does Wisconsin have a fully
approved SIP for the area under section 110(k) of the CAA?

    As criteria for redesignation of an area from nonattainment to
attainment of a NAAQS, the CAA requires EPA to determine that a state
has met all applicable requirements under section 110 and part D of
title I of the CAA (see section 107(d)(3)(E)(v) of the CAA) and that a
state has a fully approved SIP under section 110(k) of the CAA (see
section 107(d)(3)(E)(ii) of the CAA). EPA finds that WDNR has met all
applicable SIP requirements, for purposes of redesignation, under
section 110 and part D of title I of the CAA (requirements specific to
nonattainment areas for the 2015 ozone NAAQS). Additionally, EPA finds
that all applicable requirements of the Wisconsin SIP for the area have
been fully approved under section 110(k) of the CAA. In making these
determinations, EPA ascertained which CAA requirements are applicable
to the Manitowoc area and the Wisconsin SIP and, if applicable, whether
the required Wisconsin SIP elements are fully approved under section
110(k) and part D of the CAA. As discussed more fully below, SIPs must
be fully approved only with respect to currently applicable
requirements of the CAA.
    The September 4, 1992 Calcagni memorandum (see ``Procedures for
Processing Requests to Redesignate Areas to Attainment,'' Memorandum
from John Calcagni, Director, Air Quality Management Division,
September 4, 1992) describes EPA's interpretation of section
107(d)(3)(E) of the CAA. Under this interpretation, a state and the
area it wishes to redesignate must meet the relevant CAA requirements
that are due prior to the state's submittal of a complete redesignation
request for the area. See also the September 17, 1993, Michael Shapiro
memorandum and 60 FR 12459, 12465-66 (March 7, 1995) (redesignation of
Detroit-Ann Arbor, Michigan to attainment of the 1-hour ozone NAAQS).
Applicable requirements of the CAA that come due after the state's
submittal of a complete request remain applicable until a redesignation
to attainment is approved but are not required as a prerequisite to
redesignation. See section 175A(c) of the CAA. Sierra Club v. EPA, 375
F.3d 537 (7th Cir. 2004). See also 68 FR 25424, 25427 (May 12, 2003)
(redesignation of the St. Louis/East St. Louis area to attainment of
the 1-hour ozone NAAQS).
1. WDNR Has Met All Applicable Requirements of Section 110 and Part D
of the CAA Applicable to the Manitowoc Area for Purposes of
Redesignation
a. Section 110 General Requirements for Implementation Plans
    Section 110(a)(2) of the CAA delineates the general requirements
for a SIP. Section 110(a)(2) provides that the SIP must have been
adopted by a state after reasonable public notice and hearing, and
that, among other things, it must: (1) Include enforceable emission
limitations and other control measures, means or techniques necessary
to meet the requirements of the CAA; (2) provide for establishment and
operation of appropriate devices, methods, systems and procedures
necessary to monitor ambient air quality; (3) provide for
implementation of a source permit program to regulate the modification
and construction of stationary sources within the areas covered by the
plan; (4) include provisions for the implementation of part C
prevention of significant deterioration (PSD) and part D new source
review (NSR) permit programs; (5) include provisions for stationary
source emission control measures, monitoring, and reporting; (6)
include provisions for air quality modeling; and, (7) provide for
public and local agency participation in planning and emission control
rule development.
    Section 110(a)(2)(D) of the CAA requires SIPs to contain measures
to prevent sources in a state from significantly contributing to air
quality problems in another state. To implement this provision, EPA has
required certain states to establish programs to address transport of
certain

air pollutants, e.g., NOX SIP call.\3\ However, like many of
the 110(a)(2) requirements, the section 110(a)(2)(D) SIP requirements
are not linked with a particular area's ozone designation and
classification. EPA concludes that the SIP requirements linked with an
area's ozone designation and classification are the relevant measures
to evaluate when reviewing a redesignation request for an area. The
section 110(a)(2)(D) requirements, where applicable, continue to apply
to a state regardless of the designation of any one particular area
within the state. Thus, we believe these requirements are not
applicable requirements for purposes of redesignation. See 65 FR 37890
(June 15, 2000), 66 FR 50399 (October 19, 2001), 68 FR 25418, 25426-27
(May 13, 2003).
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    \3\ On October 27, 1992 (63 FR 57356), EPA issued a
NOX SIP call requiring the District of Columbia and 22
states to reduce emissions of NOX in order to reduce the
transport of ozone and ozone precursors.
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    In addition, EPA believes that other section 110 elements that are
neither connected with nonattainment plan submissions nor linked with
an area's ozone attainment status are not applicable requirements for
purposes of redesignation. An area will still be subject to these
requirements after such area is redesignated to attainment of the 2015
ozone NAAQS. The section 110 and part D requirements, which are linked
with a particular area's designation and classification, are the
relevant measures to evaluate in reviewing a redesignation request.
This approach is consistent with EPA's existing policy on applicability
(i.e., for redesignations) of conformity and oxygenated fuels
requirements, as well as with section 184 ozone transport requirements.
See Reading, Pennsylvania proposed and final rulemakings, 61 FR 53174-
53176 (October 10, 1996) and 62 FR 24826 (May 7, 1997); Cleveland-
Akron-Loraine, Ohio final rulemaking, 61 FR 20458 (May 7, 1996); and
Tampa, Florida final rulemaking, 60 FR 62748 (December 7, 1995). See
also the discussion of this issue in the Cincinnati, Ohio ozone
redesignation (65 FR 37890, June 19, 2000), and the Pittsburgh,
Pennsylvania ozone redesignation (66 FR 50399, October 19, 2001).
    We have reviewed Wisconsin's SIP and have concluded that it meets
the general SIP requirements under section 110 of the CAA, to the
extent those requirements are applicable for purposes of
redesignation.\4\
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    \4\ On September 14, 2018, WDNR submitted an infrastructure SIP
to meet the requirements of section 110 for the 2015 ozone NAAQS.
The requirements of section 110(a)(2), however, are statewide
requirements that are not linked to the 2015 ozone NAAQS
nonattainment status of the Manitowoc area. Therefore, EPA concludes
that these infrastructure requirements are not applicable
requirements for purposes of review of the State's 2015 ozone NAAQS
redesignation request.
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b. Part D Requirements
    Section 172(c) of the CAA sets forth the basic requirements of air
quality plans for states with nonattainment areas that are required to
submit them pursuant to section 172(b). Subpart 2 of part D, which
includes section 182 of the CAA, establishes specific requirements for
ozone nonattainment areas depending on the areas' nonattainment
classifications.
    The Manitowoc area was classified as marginal under subpart 2 for
the 2015 ozone NAAQS. As such, the area is subject to the subpart 1
requirements contained in section 172(c) and section 176. Similarly,
the area is subject to the subpart 2 requirements contained in section
182(a) (marginal nonattainment area requirements). A thorough
discussion of the requirements contained in section 172(c) and 182 can
be found in the General Preamble for Implementation of Title I (57 FR
13498).
i. Subpart 1 Section 172 Requirements
    CAA Section 172(b) requires states to submit SIPs meeting the
requirements of section 172(c) no later than three years from the date
of the nonattainment designation. For the Manitowoc nonattainment area,
SIPs required under CAA section 172 were due August 3, 2021. Section
172(c)(3) requires submittal and approval of a comprehensive, accurate
and complete inventory of actual emissions for the area. This
requirement was superseded by the inventory requirement in Section
182(a)(1), discussed further in Section iii. Section 182(a)
Requirements.
    Section 172(c)(4) requires the identification and quantification of
allowable emissions for major new and modified stationary sources in an
area. Section 172(c)(5) requires permits for the construction and
operation of new and modified major stationary sources in the
nonattainment area. EPA has previously approved WDNR's NSR program on
January 18, 1995 (60 FR 3538). However, EPA has determined that, since
PSD requirements will apply after redesignation, areas being
redesignated need not comply with the requirement that a NSR program be
approved prior to redesignation, provided that the area demonstrates
maintenance of the NAAQS without part D NSR. A more detailed rationale
for this view is described in a memorandum from Mary Nichols, Assistant
Administrator for Air and Radiation, dated October 14, 1994, entitled,
``Part D New Source Review Requirements for Areas Requesting
Redesignation to Attainment.'' WDNR has demonstrated that the Manitowoc
area will be able to maintain the 2015 ozone NAAQS without part D NSR
in effect; therefore, EPA concludes that the State need not have a
fully approved part D NSR program prior to approval of the
redesignation request. See rulemakings for Detroit, Michigan (60 FR
12467-12468, March 7, 1995); Cleveland-Akron-Lorain, Ohio (61 FR 20458,
20469-20470, May 7, 1996); Louisville, Kentucky (66 FR 53665, October
23, 2001); and Grand Rapids, Michigan (61 FR 31834-31837, June 21,
1996). WDNR's PSD program will become effective in the Manitowoc area
upon redesignation to attainment. EPA approved WDNR's PSD program on
October 6, 2014 (79 FR 60064) and February 7, 2017 (82 FR 9515).
ii. Section 176 Conformity Requirements
    Section 176(c) of the CAA requires states to establish criteria and
procedures to ensure that Federally supported or funded projects
conform to the air quality planning goals in the applicable SIP. The
requirement to determine conformity applies to transportation plans,
programs and projects that are developed, funded or approved under
title 23 of the United States Code (U.S.C.) and the Federal Transit Act
(transportation conformity) as well as to all other Federally supported
or funded projects (general conformity). State transportation
conformity SIP revisions must be consistent with Federal conformity
regulations relating to consultation, enforcement and enforceability
that EPA promulgated pursuant to its authority under the CAA.
    EPA interprets the conformity SIP requirements \5\ as not applying
for purposes of evaluating a redesignation request under section
107(d), because state conformity rules are still required after
redesignation and Federal conformity rules apply where state conformity
rules have not been approved. See Wall v. EPA, 265 F.3d 426 (6th Cir.
2001) (upholding this interpretation); see also 60 FR 62748

(December 7, 1995) (redesignation of Tampa, Florida).
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    \5\ CAA section 176(c)(4)(E) requires states to submit revisions
to their SIPs to reflect certain Federal criteria and procedures for
determining transportation conformity. Transportation conformity
SIPs are different from SIPs requiring the development of MVEBs,
such as control strategy SIPs and maintenance plans.
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iii. Section 182(a) Requirements
    Section 182(a)(1) requires states to submit a comprehensive,
accurate, and current inventory of actual emissions from sources of VOC
and NOX emitted within the boundaries of the ozone
nonattainment area within two years of designation. For the Manitowoc
area, this submission was due August 3, 2020. WDNR submitted an
emissions inventory that meets the requirements of Section 182(a)(1) in
this redesignation request.
    Under section 182(a)(2)(A), states with ozone nonattainment areas
that were designated prior to the enactment of the 1990 CAA amendments
were required to submit, within six months of classification, all rules
and corrections to existing VOC reasonably available control technology
(RACT) rules that were required under section 172(b)(3) prior to the
1990 CAA amendments. The Manitowoc area is not subject to the section
182(a)(2) RACT ``fix up'' requirement for the 2015 ozone NAAQS because
it was designated as nonattainment for this standard after the
enactment of the 1990 CAA amendments and because WDNR complied with
this requirement for the Manitowoc area under the prior 1-hour ozone
NAAQS. See 68 FR 18883 (June 16, 2003).
    Section 182(a)(2)(B) requires each state with a marginal ozone
nonattainment area that implemented or was required to implement a
vehicle inspection and maintenance (I/M) program prior to the 1990 CAA
amendments to submit a SIP revision for an I/M program no less
stringent than that required prior to the 1990 CAA amendments or
already in the SIP at the time of the CAA amendments, whichever is more
stringent. For the purposes of the 2015 ozone NAAQS and the
consideration of WDNR's redesignation request for this standard, the
Manitowoc area is not subject to the section 182(a)(2)(B) requirement
because the Manitowoc area was designated as nonattainment for the 2015
ozone NAAQS after the enactment of the 1990 CAA amendments.
    Section 182(a)(2)(C), under the heading ``Corrections to the State
implementation plans--Permit programs'' contains a requirement for
states to submit NSR SIP revisions to meet the requirements of CAA
sections 172(c)(5) and 173 within two years after the date of enactment
of the 1990 CAA Amendments. For the purposes of the 2015 ozone NAAQS
and the consideration of WDNR's redesignation request for this
standard, the Manitowoc area is not subject to the section 182(a)(2)(C)
requirement because the Manitowoc area was designated as nonattainment
for the 2015 ozone NAAQS after the enactment of the 1990 CAA
amendments.
    Section 182(a)(4) specifies the emission offset ratio for marginal
areas but does not establish a SIP submission deadline. EPA's December
6, 2018, implementation rule for the 2015 ozone NAAQS clarifies that
nonattainment NSR permit program requirements applicable to the 2015
NAAQS are due three years from the effective date of the nonattainment
designation, i.e., August 3, 2021. See 83 FR 62998, 63001. This
approach is based on the provision in CAA section 172(b) requiring the
submission of plans or plan revisions ``no later than 3 years from the
date of the nonattainment designation.'' These offset ratios are
incorporated into Wisconsin's Nonattainment NSR permitting program,
which EPA approved on January 18, 1995 (60 FR 3538).
    While WDNR has not submitted a nonattainment NSR SIP revision to
address the 2015 ozone NAAQS, WDNR currently has a fully-approved part
D NSR program in place. In addition, EPA approved WDNR's PSD program on
February 7, 2017 (82 FR 9515). As discussed above, WDNR has
demonstrated that the Manitowoc area will be able to maintain the 2015
ozone NAAQS without part D NSR in effect; therefore, EPA concludes that
the State need not have a fully approved part D NSR program prior to
approval of the redesignation request. The State's PSD program will
become effective in the Manitowoc area upon redesignation to
attainment.
    Section 182(a)(3) requires states to submit periodic emission
inventories and a revision to the SIP to require the owners or
operators of stationary sources to annually submit emission statements
documenting actual VOC and NOX emissions. As discussed below
in section IV.D.4. of this proposed rule, Wisconsin will continue to
update its emissions inventory at least once every three years.
Regarding stationary source emission statements, this submission was
due August 3, 2020. WDNR's authority under Chapter NR 438 of the
Wisconsin Administrative Code (WAC) requires annual NOX and
VOC emission reporting from any facility in the State that emits a
pollutant above the thresholds specified in the code. EPA approved
Wisconsin's emission reporting program as satisfying the CAA emission
statement requirement on December 6, 1993 (58 FR 64155).
    Therefore, EPA finds that the Manitowoc area has satisfied all
applicable requirements for purposes of redesignation under section 110
and part D of title I of the CAA.
2. The Manitowoc Area Has a Fully Approved SIP for Purposes of
Redesignation Under Section 110(k) of the CAA
    At various times, WDNR has adopted and submitted, and EPA has
approved, provisions addressing the various SIP elements applicable for
the ozone NAAQS. As discussed above, EPA has fully approved the
Wisconsin SIP for the Manitowoc area under section 110(k) for all
requirements applicable for purposes of redesignation under the 2015
ozone NAAQS. EPA may rely on prior SIP approvals in approving a
redesignation request (see the Calcagni memorandum at page 3;
Southwestern Pennsylvania Growth Alliance v. Browner, 144 F.3d 984,
989-990 (6th Cir. 1998); Wall v. EPA, 265 F.3d 426), plus any
additional measures it may approve in conjunction with a redesignation
action (see 68 FR 25426 (May 12, 2003) and citations therein).

C. Are the air quality improvements in the Manitowoc area due to
permanent and enforceable emission reductions?

    To redesignate an area from nonattainment to attainment, section
107(d)(3)(E)(iii) of the CAA requires EPA to determine that the air
quality improvement in the area is due to permanent and enforceable
reductions in emissions resulting from the implementation of the SIP
and applicable Federal air pollution control regulations and other
permanent and enforceable emission reductions. EPA has determined that
WDNR has demonstrated that that the observed ozone air quality
improvement in the Manitowoc area is due to permanent and enforceable
reductions in VOC and NOX emissions resulting from State and
Federal measures adopted into the SIP.
    In making this demonstration, the State has calculated the change
in emissions between 2017 and 2019. The reduction in emissions and the
corresponding improvement in air quality over this time period can be
attributed to a number of regulatory control measures that the
Manitowoc area and upwind areas have implemented in recent years. In
addition, WDNR provided an analysis to demonstrate that the improvement
in air quality was not due to unusually favorable meteorology. Based on
the information summarized below, EPA finds that WDNR has adequately
demonstrated that the improvement in

air quality is due to permanent and enforceable emissions reductions.
1. Permanent and Enforceable Emission Controls Implemented
a. Regional NOX Controls
    Clean Air Interstate Rule (CAIR)/Cross State Air Pollution Rule
(CSAPR). CAIR created regional cap-and-trade programs to reduce sulfur
dioxide (SO2) and NOX emissions in 27 eastern
states, including Wisconsin, that contributed to downwind nonattainment
and maintenance of the 1997 ozone NAAQS and the 1997 fine particulate
matter (PM2.5) NAAQS. See 70 FR 25162 (May 12, 2005). EPA
approved WDNR's CAIR regulations into the Wisconsin SIP on October 16,
2007 (72 FR 58542). In 2008, the United States Court of Appeals for the
District of Columbia Circuit (D.C. Circuit) initially vacated CAIR,
North Carolina v. EPA, 531 F.3d 896 (D.C. Cir. 2008), but ultimately
remanded the rule to EPA without vacatur to preserve the environmental
benefits provided by CAIR, North Carolina v. EPA, 550 F.3d 1176, 1178
(D.C. Cir. 2008). On August 8, 2011 (76 FR 48208), acting on the D.C.
Circuit's remand, EPA promulgated CSAPR to replace CAIR and thus
addressed the interstate transport of emissions contributing to
nonattainment and interfering with maintenance of the two air quality
standards covered by CAIR. CSAPR requires substantial reductions of
SO2 and NOX emissions from electric generating
units (EGUs) in 28 states in the Eastern United States.
    The D.C. Circuit's initial vacatur of CSAPR \6\ was reversed by the
United States Supreme Court on April 29, 2014, and the case was
remanded to the D.C. Circuit to resolve remaining issues in accordance
with the high Court's ruling. EPA v. EME Homer City Generation, L.P.,
134 S. Ct. 1584 (2014). On remand, the D.C. Circuit affirmed CSAPR in
most respects, but invalidated without vacating some of the CSAPR
budgets as to a number of states. EME Homer City Generation, L.P. v.
EPA, 795 F.3d 118 (D.C. Cir. 2015). The remanded budgets include the
Phase 2 NOX ozone season emissions budgets for Wisconsin. On
September 7, 2016, in response to the remand, EPA finalized an update
to CSAPR requiring further reductions in NOX emissions from
EGUs beginning in May 2017. This final rule was projected to result in
a 20% reduction in ozone season NOX emissions from EGUs in
the eastern United States, a reduction of 800,000 tons in 2017 compared
to 2015 levels.
---------------------------------------------------------------------------

    \6\ EME Homer City Generation, L.P. v. EPA, 696 F.3d 7, 38 (D.C.
Cir. 2012).
---------------------------------------------------------------------------

    The reduction in NOX emissions from the implementation
of CSAPR results in lower concentration of transported ozone entering
the Manitowoc area upon implementation of the phase 2 budgets in 2019
and throughout the maintenance period.
b. Federal Emission Control Measures
    Reductions in VOC and NOX emissions have occurred
statewide and in upwind areas as a result of Federal emission control
measures, with additional emission reductions expected to occur in the
future. Federal emission control measures include the following.
    Tier 2 Emission Standards for Vehicles and Gasoline Sulfur
Standards. On February 10, 2000 (65 FR 6698), EPA promulgated Tier 2
motor vehicle emission standards and gasoline sulfur control
requirements. These emission control requirements result in lower VOC
and NOX emissions from new cars and light duty trucks,
including sport utility vehicles. With respect to fuels, this rule
required refiners and importers of gasoline to meet lower standards for
sulfur in gasoline, which were phased in between 2004 and 2006. By
2006, refiners were required to meet a 30 ppm average sulfur level,
with a maximum cap of 80 ppm. This reduction in fuel sulfur content
ensures the effectiveness of low emission-control technologies. The
Tier 2 tailpipe standards established in this rule were phased in for
new vehicles between 2004 and 2009. EPA estimates that, when fully
implemented in 2030, this rule will cut NOX and VOC
emissions from light-duty vehicles and light-duty trucks by
approximately 76% and 28%, respectively. NOX and VOC
reductions from medium-duty passenger vehicles included as part of the
Tier 2 vehicle program are estimated to be approximately 37,000 and
9,500 tons per year, respectively, when fully implemented. As projected
by these estimates and demonstrated in the onroad emission modeling for
the Manitowoc area, much of these emission reductions occurred by the
attainment years and additional emission reductions will occur
throughout the maintenance period, as older vehicles are replaced with
newer, compliant model years.
    Tier 3 Emission Standards for Vehicles and Gasoline Sulfur
Standards. On April 28, 2014 (79 FR 23414), EPA promulgated Tier 3
motor vehicle emission and fuel standards to reduces both tailpipe and
evaporative emissions and to further reduce the sulfur content in
fuels. The rule will be phased in between 2017 and 2025. Tier 3 sets
new tailpipe standards for the sum of VOC and NOX and for
particulate matter. The VOC and NOX tailpipe standards for
light-duty vehicles represent approximately an 80% reduction from pre-
2017's fleet average and a 70% reduction in per-vehicle particulate
matter (PM) standards. Heavy-duty tailpipe standards represent about a
60% reduction in both fleet average VOC and NOX and per-
vehicle PM standards. The evaporative emissions requirements in the
rule will result in approximately a 50% reduction from previous
standards and apply to all light-duty and onroad gasoline-powered
heavy-duty vehicles. Finally, the rule lowered the sulfur content of
gasoline to an annual average of 10 ppm by January 2017. As projected
by these estimates and demonstrated in the onroad emission modeling for
the Manitowoc area, some of these emission reductions occurred by the
attainment years and additional emission reductions will occur
throughout the maintenance period, as older vehicles are replaced with
newer, compliant model years.
    Heavy-Duty Diesel Engine Rules. In July 2000, EPA issued a rule for
onroad heavy-duty diesel engines that includes standards limiting the
sulfur content of diesel fuel. Emissions standards for NOX,
VOC and PM were phased in between model years 2007 and 2010. In
addition, the rule reduced the highway diesel fuel sulfur content to 15
parts per million by 2007, leading to additional reductions in
combustion NOX and VOC emissions. EPA has estimated future
year emission reductions due to implementation of this rule.
Nationally, EPA estimated that 2015 NOX and VOC emissions
would decrease by 1,260,000 tons and 54,000 tons, respectively.
Nationally, EPA estimates that by 2030 NOX and VOC emissions
will decrease by 2,570,000 tons and 115,000 tons, respectively. As
projected by these estimates and demonstrated in the onroad emission
modeling for the Manitowoc area, some of these emission reductions
occurred by the attainment years and additional emission reductions
will occur throughout the maintenance period, as older vehicles are
replaced with newer, compliant model years.
    Nonroad Diesel Rule. On June 29, 2004 (69 FR 38958), EPA issued a
rule adopting emissions standards for nonroad diesel engines and sulfur
reductions in nonroad diesel fuel. This rule applies to diesel engines
used primarily in construction, agricultural, and industrial
applications. Emission standards were phased in for 2008 through 2015
model years based on

engine size. The SO2 limits for nonroad diesel fuels were
phased in from 2007 through 2012. EPA estimates that when fully
implemented in 2030, compliance with this rule will cut NOX
emissions from these nonroad diesel engines by approximately 90%. As
projected by these estimates and demonstrated in the nonroad emission
modeling for the Manitowoc area, some of these emission reductions
occurred by the attainment years and additional emission reductions
will occur throughout the maintenance period.
    Nonroad Spark-Ignition Engines and Recreational Engine Standards.
On November 8, 2002 (67 FR 68242), EPA adopted emission standards for
large spark-ignition engines such as those used in forklifts and
airport ground-service equipment; recreational vehicles such as off-
highway motorcycles, all-terrain vehicles, and snowmobiles; and
recreational marine diesel engines. These emission standards were
phased in from model year 2004 through 2012. When fully implemented in
2030, EPA estimates an overall 72% reduction in VOC emissions from
these engines and an 80% reduction in NOX emissions. As
projected by these estimates and demonstrated in the nonroad emission
modeling for the Manitowoc area, some of these emission reductions
occurred by the attainment years and additional emission reductions
will occur throughout the maintenance period.
    Category 3 Marine Diesel Engine Standards. On April 30, 2010 (75 FR
22896), EPA issued emission standards for marine compression-ignition
engines at or above 30 liters per cylinder. Tier 2 emission standards
applied beginning in 2011, and are expected to result in a 15 to 25%
reduction in NOX emissions from these engines by 2030. Final
Tier 3 emission standards apply beginning in 2016 and are expected to
result in approximately an 80% reduction in NOX from these
engines by 2030. As projected by these estimates and demonstrated in
the nonroad emission modeling for the Manitowoc area, some of these
emission reductions occurred by the attainment years and additional
emission reductions will occur throughout the maintenance period.
2. Emission Reductions
    WDNR is using a 2017 emissions inventory as the nonattainment year.
This is appropriate because it was one of the years used to designate
the area as nonattainment. WDNR is using 2019 as the attainment year,
which is appropriate because it is one of the years in the 2018-2020
period used to demonstrate attainment.
    Area and nonroad mobile emissions were collected from data
available on EPA's Air Emissions Modeling and National Emissions
Inventory websites.\7\ Using 2017 National Emissions Inventory (NEI)
and Emissions Modeling platform 2016v1, WDNR collected data for the
2017 NEI year, and the 2023 projected inventory. 2017 emissions were
assumed to be equivalent to the 2017 NEI emissions. 2019 emissions were
derived by interpolating between 2017 and 2023 (2017 NEI and 2016v1).
---------------------------------------------------------------------------

    \7\ https://www.epa.gov/air-emissions-modeling/2011-version-63-platform.
---------------------------------------------------------------------------

    WDNR compiled 2017 and 2019 actual point source emissions from
state inventory databases. Tons per summer day (TPSD) emissions were
then derived by using emissions from the third quarter of the calendar
year (i.e., July 1 to September 30) to represent the typical ozone
season day emissions for these sources and applying a conversion factor
to the annual emissions to account for ozone season work weekday
emissions being higher if a facility only operates during the work week
(i.e., five days) instead of the entire week (i.e., seven days).
    Onroad mobile source emissions were calculated from emission
factors produced by EPA's Motor Vehicle Emission Simulator model, MOVES
3.0.1, and transportation data developed by the Wisconsin Department of
Transportation.
    Using the inventories described above, WDNR's submittal documents
changes in VOC and NOX emissions from 2017 to 2019 for the
Manitowoc area. Emissions data are shown in Tables 2 through 6.

                                            Table 2--Manitowoc Area NOX Emissions for Nonattainment Year 2017
                                                                         [TPSD]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                               County                                     Point             Area           Nonroad           Onroad           Total
--------------------------------------------------------------------------------------------------------------------------------------------------------
Manitowoc..........................................................            1.83             0.75             1.05             1.76             5.39
--------------------------------------------------------------------------------------------------------------------------------------------------------

                                            Table 3--Manitowoc Area VOC Emissions for Nonattainment Year 2017
                                                                         [TPSD]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                               County                                     Point             Area           Nonroad           Onroad           Total
--------------------------------------------------------------------------------------------------------------------------------------------------------
Manitowoc..........................................................            1.33             2.56             0.67             0.68             5.23
--------------------------------------------------------------------------------------------------------------------------------------------------------

                                             Table 4--Manitowoc Area NOX Emissions for Attainment Year 2019
                                                                         [TPSD]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                               County                                     Point             Area           Nonroad           Onroad           Total
--------------------------------------------------------------------------------------------------------------------------------------------------------
Manitowoc..........................................................            2.22             0.71             0.98             1.38             5.30
--------------------------------------------------------------------------------------------------------------------------------------------------------

                                             Table 5--Manitowoc Area VOC Emissions for Attainment Year 2019
                                                                         [TPSD]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                               County                                     Point             Area           Nonroad           Onroad           Total
--------------------------------------------------------------------------------------------------------------------------------------------------------
Manitowoc..........................................................            1.18             2.45             0.61             0.57             4.82
--------------------------------------------------------------------------------------------------------------------------------------------------------

                                  Table 6--Change in NOX and VOC Emissions in the Manitowoc Area Between 2017 and 2019
                                                                         [TPSD]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                NOX                                             VOC
                                                         -----------------------------------------------------------------------------------------------
                                                                                Net change                                      Net change
                                                               2017            2019         (2017-2019)        2017            2019         (2017-2019)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Point...................................................            1.83            2.22            0.39            1.33            1.18           -0.15
Area....................................................            0.75            0.71           -0.04            2.56            2.45           -0.11
Nonroad.................................................            1.05            0.98           -0.07            0.67            0.61           -0.06
Onroad..................................................            1.76            1.38           -0.38            0.68            0.57           -0.11
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................            5.39            5.30           -0.09            5.23            4.82           -0.41
--------------------------------------------------------------------------------------------------------------------------------------------------------

    As shown in Table 6, NOX and VOC emissions in the
Manitowoc area declined by 0.09 TPSD and 0.41 TPSD, respectively,
between 2017 and 2019.
3. Meteorology
    WDNR analyzed the maximum fourth-high 8-hour ozone values for May,
June, July, August, and September, for years 2000 to 2019, to further
support WDNR's demonstration that the improvement in air quality
between the year violations occurred and the year attainment was
achieved, is due to permanent and enforceable emission reductions and
not unusually favorable meteorology.

    First, the maximum 8-hour ozone concentration at the monitor in the
Manitowoc area was compared to the number of days where the maximum
temperature was greater than or equal to 80 [deg]F. While there is a
clear trend in decreasing ozone concentrations at the monitor, there is
no such trend in the temperature data.
    WDNR also examined the relationship between the average summer
temperature for each year of the 2000-2019 period and the fourth-high
8-hour ozone concentration. Given the similarity of ozone
concentrations observed at the monitor and the regional nature of ozone
formation, WDNR conducted this analysis using the average fourth-high
8-hour ozone concentration from the Manitowoc monitor. While there is
some correlation between average summer temperatures and ozone
concentrations, this correlation does not exist over the study period.
The linear regression lines for each data set demonstrate that the
average summer temperatures have increased over the 2000 to 2019
period, while average ozone concentrations have decreased. Because the
correlation between temperature and ozone formation is well
established, these data suggest that reductions in precursors are
responsible for the reductions in ozone concentrations in the Manitowoc
area, and not unusually favorable summer temperatures.

    As discussed above, WDNR identified numerous Federal rules that
resulted in the reduction of VOC and NOX emissions from 2017
to 2019. In addition, WDNR's analyses of meteorological variables
associated with ozone formation demonstrate that the improvement in air
quality in the Manitowoc area between the year violations occurred and
the year attainment was achieved is not due to unusually favorable
meteorology. Therefore, EPA finds that WDNR has shown that the air
quality improvements in the Manitowoc area are due to permanent and
enforceable emissions reductions.

D. Does WDNR have a fully approvable ozone maintenance plan for the
Manitowoc area?

    As one of the criteria for redesignation to attainment, section
107(d)(3)(E)(iv) of the CAA requires EPA to determine that the area has
a fully approved maintenance plan pursuant to section 175A of the CAA.
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. In conjunction with its request to redesignate the
Manitowoc area to attainment for the 2015 ozone NAAQS, WDNR submitted a
SIP revision to provide for maintenance of the 2015 ozone NAAQS through
2033, more than 10 years after the expected effective date of the
redesignation to attainment. As discussed below, EPA proposes to find
that WDNR's ozone maintenance plan includes the necessary components
and approve the maintenance plan as a revision of the Wisconsin SIP.
1. Attainment Inventory
    EPA is proposing to determine that the Manitowoc area has attained
the 2015 ozone NAAQS based on monitoring data for the period of 2018-
2020. WDNR selected 2019 as the attainment emissions inventory year to
establish attainment emission levels for VOC and NOX. The
attainment emissions inventory identifies the levels of emissions in
the Manitowoc area that are sufficient to attain the 2015 ozone NAAQS.
The derivation of the

attainment year emissions was discussed above in section IV.C.2. of
this proposed rule. The attainment level emissions, by source category,
are summarized in Tables 4 and 5 above.
2. Has the State documented maintenance of the ozone standard in the
Manitowoc area?
    WDNR has demonstrated maintenance of the 2015 ozone NAAQS through
2033 by ensuring that current and future emissions of VOC and
NOX for the Manitowoc area remain at or below attainment
year emission levels. A maintenance demonstration need not be based on
modeling. See Wall v. EPA, 265 F.3d 426 (6th Cir. 2001), Sierra Club v.
EPA, 375 F. 3d 537 (7th Cir. 2004). See also 66 FR 53094, 53099-53100
(October 19, 2001), 68 FR 25413, 25430-25432 (May 12, 2003).
    WDNR is using emissions inventories for the years 2025 and 2033 to
demonstrate maintenance. 2033 is more than 10 years after the expected
effective date of the redesignation to attainment and 2025 was selected
to demonstrate that emissions are not expected to spike in the interim
between the attainment year and the final maintenance year. The
emissions inventories were developed as described below.
    Point, area, and nonroad mobile emissions were collected from data
available on EPA's Air Emissions Modeling website. Using Emissions
Modeling platform 2016v1, WDNR collected data for the 2023 and 2028
projected inventories. TPSD emissions were then derived by dividing
July emissions by the number of days in July. For interim year 2023,
version 2023el was used without modification except for adjustments to
emissions for ten point sources, based on more recent source specific
information. 2030 emissions were derived by linearly extrapolating from
2016 to 2028. As with the 2023 inventory, adjustments were made to the
emissions for ten point sources based on more recent source specific
information.
    Onroad mobile source emissions were developed through the combined
effort of WDNR and Wisconsin Department of Transportation and were
calculated from emission factors produced by EPA's MOVES 3.0.1 model
and data extracted from the region's travel-demand model. Emissions
data are shown in Tables 7 through 11 below.

                                         Table 7--Manitowoc Area NOX Emissions for Interim Maintenance Year 2025
                                                                         [TPSD]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                               County                                     Point             Area           Nonroad           Onroad           Total
--------------------------------------------------------------------------------------------------------------------------------------------------------
Manitowoc..........................................................            2.52             0.63             0.84             0.91             4.90
--------------------------------------------------------------------------------------------------------------------------------------------------------

                                         Table 8--Manitowoc Area VOC Emissions for Interim Maintenance Year 2025
                                                                         [TPSD]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                               County                                     Point             Area           Nonroad           Onroad           Total
--------------------------------------------------------------------------------------------------------------------------------------------------------
Manitowoc..........................................................            1.36             2.25             0.53             0.47             4.60
--------------------------------------------------------------------------------------------------------------------------------------------------------

                                             Table 9--Manitowoc Area NOX Emissions for Maintenance Year 2033
                                                                         [TPSD]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                               County                                     Point             Area           Nonroad           Onroad           Total
--------------------------------------------------------------------------------------------------------------------------------------------------------
Manitowoc..........................................................            2.55             0.61             0.80             0.61             4.56
--------------------------------------------------------------------------------------------------------------------------------------------------------

                                            Table 10--Manitowoc Area VOC Emissions for Maintenance Year 2033
                                                                         [TPSD]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                               County                                     Point             Area           Nonroad           Onroad           Total
--------------------------------------------------------------------------------------------------------------------------------------------------------
Manitowoc..........................................................            1.41             2.35             0.50             0.32             4.58
--------------------------------------------------------------------------------------------------------------------------------------------------------

                                  Table 11--Change in NOX and VOC Emissions in the Manitowoc Area Between 2019 and 2033
                                                                         [TPSD]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                     NOX                                                    VOC
                                           -------------------------------------------------------------------------------------------------------------
                                                                                Net change                                             Net change
                                                2019         2025         2033       (2019-2033)       2019         2025         2033       (2019-2033)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Point.....................................         2.22         2.52         2.55            0.33         1.18         1.36         1.41            0.23
Area......................................         0.71         0.63         0.61           -0.10         2.45         2.25         2.35           -0.10
Nonroad...................................         0.98         0.84         0.80           -0.18         0.61         0.53         0.50           -0.11
Onroad....................................         1.38         0.91         0.61           -0.77         0.57         0.47         0.32           -0.25
                                           -------------------------------------------------------------------------------------------------------------
    Total.................................         5.30         4.90         4.56           -0.74         4.82         4.60         4.58           -0.24
--------------------------------------------------------------------------------------------------------------------------------------------------------

    In summary, WDNR's maintenance demonstration for the Manitowoc area
shows maintenance of the 2015 ozone NAAQS by providing emissions
information to support the demonstration that future emissions of
NOX and VOC will remain at or below 2019 emission levels
when taking into account both future source growth and implementation
of future controls. Table 11 shows NOX and VOC emissions in
the Manitowoc area are projected to decrease by 0.74 TPSD and 0.24
TPSD, respectively, between 2019 and 2033.
3. Continued Air Quality Monitoring
    WDNR has committed to continue to operate the ozone monitors listed
in Table 1 above. WDNR has committed 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 AQS in
accordance with Federal guidelines.
4. Verification of Continued Attainment
    The State of Wisconsin has confirmed that it has the legal
authority to enforce and implement the requirements of the maintenance
plan for the Manitowoc 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
the current ozone monitors located in the Manitowoc area. There are no
plans to discontinue operation, relocate, or otherwise change the
existing ozone monitoring network other than through revisions in the
network approved by the 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 3 years, consistent with the
requirements of 40 CFR part 51, subpart A, and 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). The most recent triennial inventory for Wisconsin was compiled
for 2017. Point source facilities covered by WDNR's emission statement
rule, WAC Chapter NR 438, will continue to submit VOC and
NOX emissions on an annual basis.
5. What is the contingency plan for the Manitowoc area?
    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 a
contingency plan for the Manitowoc area to address possible future
ozone air quality problems. The contingency plan adopted by WDNR has
two levels of response, a warning level response and an action level
response.
    In WDNR's plan, a warning level response will be triggered when an
annual fourth high monitored value of 0.070 ppm or higher is monitored
within the maintenance area. A warning level response will consist of
WDNR conducting a study to determine whether the ozone value indicates
a trend toward higher ozone values or whether emissions appear to be
increasing. 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. Implementation
of necessary controls in response to a warning level response trigger
will take place within 12 months from the conclusion of the most recent
ozone season.
    In WDNR's plan, an action level response is triggered when a three-
year design value exceeds 0.070 ppm or greater is monitored within the
maintenance area. When an action level response is triggered, WDNR, in
conjunction with the metropolitan planning organization or regional
council of governments, will determine what additional control measures
are needed to assure future attainment of the 2015 ozone NAAQS. Control
measures selected will be adopted and implemented within 18 months from
the close of the ozone season that prompted the action level. 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 plan:

1. Anti-idling control program for mobile sources, targeting diesel
vehicles
2. Diesel exhaust retrofits
3. Traffic flow improvements
4. Park and ride facilities
5. Rideshare/carpool program
6. Expansion of the vehicle emissions testing program

To qualify as a contingency measure, emissions reductions from that
measure must not be factored into the emissions projections used in the
maintenance plan.
    EPA is proposing to conclude that WDNR's maintenance plan
adequately addresses the five basic components of a maintenance plan:
Attainment inventory, maintenance demonstration, monitoring network,
verification of continued attainment, and a contingency plan. In
addition, as required by section 175A(b) of the CAA, WDNR has committed
to submit to EPA an updated ozone maintenance plan eight years after
redesignation of the Manitowoc area to cover an additional ten years
beyond the initial 10-year maintenance period. Thus, EPA finds that the
maintenance plan SIP revision submitted by WDNR for the Manitowoc area
meets the requirements of section 175A of the CAA and EPA proposes to
approve it as a revision to the Wisconsin SIP.

V. Has the state adopted approvable motor vehicle emission budgets?

A. Motor Vehicle Emission Budgets

    Under section 176(c) of the CAA, new transportation plans,
programs, or projects that receive Federal funding or support, such as
the construction of new highways, must ``conform'' to (i.e., be
consistent with) the SIP. Conformity to the SIP means that
transportation activities will not cause new air quality violations,
worsen existing air quality problems, or delay timely attainment of

the NAAQS or interim air quality milestones. Regulations at 40 CFR part
93 set forth EPA policy, criteria, and procedures for demonstrating and
assuring conformity of transportation activities to a SIP.
Transportation conformity is a requirement for nonattainment and
maintenance areas. Maintenance areas are areas that were previously
nonattainment for a particular NAAQS, but that have been redesignated
to attainment with an approved maintenance plan for the NAAQS.
    Under the CAA, states are required to submit, at various times,
control strategy SIPs for nonattainment areas and maintenance plans for
areas seeking redesignations to attainment of the ozone standard and
maintenance areas. See the SIP requirements for the 2015 ozone NAAQS in
EPA's December 6, 2018, implementation rule (83 FR 62998). These
control strategy SIPs (including reasonable further progress plans and
attainment plans) and maintenance plans must include MVEBs for criteria
pollutants, including ozone, and their precursor pollutants (VOC and
NOX for ozone) to address pollution from onroad
transportation sources. The MVEBs are the portion of the total
allowable emissions that are allocated to highway and transit vehicle
use that, together with emissions from other sources in the area, will
provide for attainment or maintenance. See 40 CFR 93.101.
    Under 40 CFR part 93, a MVEB for an area seeking a redesignation to
attainment must be established, at minimum, for the last year of the
maintenance plan. A state may adopt MVEBs for other years as well. The
MVEB serves as a ceiling on emissions from an area's planned
transportation system. The MVEB concept is further explained in the
preamble to the November 24, 1993, Transportation Conformity Rule (58
FR 62188). The preamble also describes how to establish the MVEB in the
SIP and how to revise the MVEB, if needed, subsequent to initially
establishing a MVEB in the SIP.

B. What is the status of EPA's adequacy determination for the proposed
VOC and NOX MVEBs for the Manitowoc area?

    When reviewing submitted control strategy SIPs or maintenance plans
containing MVEBs, EPA must affirmatively find that the MVEBs contained
therein are adequate for use in determining transportation conformity.
Once EPA affirmatively finds that the submitted MVEBs are adequate for
transportation purposes, the MVEBs must be used by state and Federal
agencies in determining whether proposed transportation projects
conform to the SIP as required by section 176(c) of the CAA.
    EPA's substantive criteria for determining adequacy of a MVEB are
set out in 40 CFR 93.118(e)(4). The process for determining adequacy
consists of three basic steps: Public notification of a SIP submission;
provision for a public comment period; and EPA's adequacy
determination. This process for determining the adequacy of submitted
MVEBs for transportation conformity purposes was initially outlined in
EPA's May 14, 1999 guidance, ``Conformity Guidance on Implementation of
March 2, 1999, Conformity Court Decision.'' EPA adopted regulations to
codify the adequacy process in the Transportation Conformity Rule
Amendments for the ``New 8-Hour Ozone and PM2.5 National
Ambient Air Quality Standards and Miscellaneous Revisions for Existing
Areas; Transportation Conformity Rule Amendments--Response to Court
Decision and Additional Rule Change,'' on July 1, 2004 (69 FR 40004).
Additional information on the adequacy process for transportation
conformity purposes is available in the proposed rule titled,
``Transportation Conformity Rule Amendments: Response to Court Decision
and Additional Rule Changes,'' 68 FR 38974, 38984 (June 30, 2003).
    As discussed earlier, WDNR's maintenance plan includes
NOX and VOC MVEBs for the Manitowoc area for 2033 and 2025,
the last year of the maintenance period and an interim year. The MVEBS
were clearly identified and precisely quantified. These MVEBs, when
considered together with all other emissions sources, are consistent
with maintenance of the 2015 ozone NAAQS.

                                                         Table 12--MVEBs for the Manitowoc Area
                                                                         [TPSD]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                          Attainment
                                           year 2019     2025 Estimated    2025 Mobile                    2033 Estimated    2033 Mobile
                                            onroad           onroad       safety margin    2025 MVEBs         onroad       safety margin    2033 MVEBs
                                           emissions       emissions       allocation                       emissions       allocation
--------------------------------------------------------------------------------------------------------------------------------------------------------
VOC...................................            0.57             0.41            0.06            0.47             0.28            0.04            0.32
NOX...................................            1.38             0.79            0.12            0.91             0.53            0.08            0.61
--------------------------------------------------------------------------------------------------------------------------------------------------------

    As shown in Table 12, the 2025 and 2033 MVEBs exceed the estimated
2025 and 2033 onroad sector emissions. In an effort to accommodate
future variations in travel demand models and vehicle miles traveled
forecast, WDNR allocated a portion of the safety margin (described
further below) to the mobile sector. WDNR has demonstrated that the
Manitowoc area can maintain the 2015 ozone NAAQS with mobile source
emissions at or below 0.47 TPSD and 0.32 TPSD of VOC and 0.91 TPSD and
0.61 TPSD of NOX in 2025 and 2033, respectively, since
despite partial allocation of the safety margin, emissions will remain
under attainment year emission levels. EPA finds adequate and is
proposing to approve the MVEBs for use to determine transportation
conformity in the Manitowoc area, because EPA has determined that the
area can maintain attainment of the 2015 ozone NAAQS for the relevant
maintenance period with mobile source emissions at the levels of the
MVEBs.

C. What is a safety margin?

    A ``safety margin'' is the difference between the attainment level
of emissions (from all sources) and the projected level of emissions
(from all sources) in the maintenance plan. As noted in Table 11, the
emissions in the Manitowoc area are projected to have safety margins of
0.74 TPSD for NOX and 0.24 TPSD for VOC in 2033 (the
difference between the attainment year, 2019, emissions and the
projected 2033 emissions for all sources in the Manitowoc area).
Similarly, there is a safety margin of 0.40 TPSD for NOX and
0.22 TPSD for VOC in 2025. Even if emissions exceeded projected levels
by the full amount of the safety margin, the counties would still
demonstrate maintenance since emission levels would equal those in the
attainment year.

    As shown in Table 12 above, WDNR is allocating a portion of that
safety margin to the mobile source sector. Specifically, in 2025, WDNR
is allocating 0.06 TPSD and 0.12 TPSD of the VOC and NOX
safety margins, respectively. In 2033, WDNR is allocating 0.04 TPSD and
0.08 TPSD of the VOC and NOX safety margins, respectively.
WDNR is not requesting allocation to the MVEBs of the entire available
safety margins reflected in the demonstration of maintenance. In fact,
the amount allocated to the MVEBs represents only a small portion of
the 2025 and 2033 safety margins. Therefore, even though the State is
requesting MVEBs that exceed the projected onroad mobile source
emissions for 2025 and 2033 contained in the demonstration of
maintenance, the permissible level of onroad mobile source emissions
that can be considered for transportation conformity purposes is well
within the safety margins of the ozone maintenance demonstration.
Further, once allocated to mobile sources, these safety margins will
not be available for use by other sources.

VI. Emissions Statement and Inventories

A. Emissions Statement

    Section 182(a)(3)(B) of the CAA requires states to include
regulations in the SIP to require sources (source facilities) to submit
annual statements characterizing sources of NOX and VOC
emissions within the source facilities and to report actual
NOX and VOC emissions for these sources. WDNR confirmed in
its August 3, 2020 submittal that Wisconsin's existing emissions
reporting rule at WAC Chapter NR 438, approved in Wisconsin's SIP,
remains in place and is adequate to meet the CAA section 182(a)(3)(B)
emission statement requirement for the 2015 ozone standard. EPA
approved this rule into the Wisconsin SIP on December 6, 1993 (58 FR
64155). This rule specifically requires all facilities in the state
that emit greater than or equal to 5 tons/year of NOX or 3
tons/year VOC during the reporting year to submit annual emissions
statements. Therefore, Wisconsin's rule WAC Chapter NR 438 meets the
requirements of CAA section 182(a)(3)(B).

B. Emissions Inventories

    CAA sections 172(c)(3) and 182(a)(1), 42 U.S.C. 7502(c)(3) and
7511a(a)(1), require states to develop and submit, as SIP revisions,
emission inventories for all areas designated as nonattainment for any
NAAQS, including the ozone NAAQS. An emission inventory for ozone is an
estimation of actual emissions of air pollutants that contribute to the
formation of ozone in an area. Ozone is a gas that is formed by the
reaction of VOC and NOX in the atmosphere in the presence of
sunlight (VOC and NOX are referred to as ozone precursors).
Therefore, an emission inventory for ozone focuses on the emissions of
VOC and NOX. VOC is emitted by many types of pollution
sources, including power plants, industrial sources, on-road and off-
road mobile sources, smaller stationary sources, collectively referred
to as area sources, and biogenic sources. NOX is primarily
emitted by combustion sources, both stationary and mobile.
    Emission inventories provide emissions data for a variety of air
quality planning tasks, including establishing baseline emission levels
(anthropogenic [manmade] emissions associated with ozone standard
violations), calculating emission reduction targets needed to attain
the NAAQS and to achieve reasonable further progress (RFP) toward
attainment of the ozone standard (not required in the areas considered
here), determining emission inputs for ozone air quality modeling
analyses, and tracking emissions over time to determine progress toward
achieving air quality and emission reduction goals. As stated above,
the CAA requires the states to submit emission inventories for areas
designated as nonattainment for ozone. For the 2015 ozone NAAQS, EPA
specifies that states submit ozone season day emission estimates for an
inventory calendar year to be consistent with the baseline year for RFP
plan as required by 40 CFR 51.1310(b). For the RFP baseline year for
the 2015 ozone NAAQS under 40 CFR 51.1310(b), states may use a calendar
year for the most recently available complete triennial (3-year cycle)
emissions inventory (40 CFR 51, subpart A) preceding the year of the
area's effective date of designation as a nonattainment area. (83 FR
63034-63035, December 6, 2018). States are required to submit estimates
of VOC and NOX emissions for four general classes of
anthropogenic sources: Stationary point sources; area sources; onroad
mobile sources; and nonroad mobile sources.
    WDNR provided documentation of a 2017 NOX and VOC base
year emissions inventory requirement for the partial Manitowoc,
nonattainment area in their October 29, 2021 submittal. WDNR selected
2017 because this was one of the three years of ozone data indicating a
violation of the ozone standard that were used to designate the areas
as nonattainment for the 2015 ozone NAAQS. 83 FR 25778, 25779. In
addition, the 2017 emissions inventory was the most recent
comprehensive, accurate, and quality assured (QA) triennial emissions
inventory in the NEI database, available at the time the state began
preparing the emissions inventory submittal for the partial Manitowoc
area. Tables 2 and 3 summarize the 2017 NOX and VOC
emissions for partial Manitowoc area in tons of emissions per ozone
season day.
    EPA has reviewed WDNR's requested SIP revision for consistency with
sections 172(c)(3) CAA and 182(a)(1) of the CAA and with EPA's emission
inventory requirements. In particular, EPA has reviewed the techniques
used by WDNR to derive and quality assure the emission estimates. EPA
has also considered whether Wisconsin has provided the public with the
opportunity to review and comment on the development of the emission
estimates, whether Wisconsin has confirmed that source facility
emission statements are required for the 2015 ozone standard, and
whether the state has addressed all public comments. WDNR documented
the procedures used to estimate the emissions for each of the major
source types. The documentation of the emission estimation procedures
is thorough and is adequate for EPA to determine that Wisconsin
followed acceptable procedures to estimate the emissions. Accordingly,
we conclude that Wisconsin has developed inventories of NOX
and VOC emissions that are comprehensive and complete.

VII. Proposed Actions

    EPA is proposing to determine that the Manitowoc nonattainment is
attaining the 2015 ozone NAAQS, based on quality-assured and certified
monitoring data for 2018-2020 showing that the area has met the
requirements for redesignation under section 107(d)(3)(E) of the CAA.
EPA is thus proposing to change the legal designation of the Manitowoc
area from nonattainment to attainment for the 2015 ozone NAAQS. EPA is
also proposing to approve, as a revision to the Wisconsin SIP, the
State's maintenance plan for the area. The maintenance plan is designed
to keep the Manitowoc area in attainment of the 2015 ozone NAAQS
through 2033. EPA also finds adequate and is proposing to approve the
newly-established 2025 and 2033 MVEBs for the Manitowoc area. EPA also
proposes to approve the base year emissions inventories for the partial
Manitowoc area under the 2015 ozone NAAQS. Finally, we are also

confirming that Wisconsin has acceptable and enforceable annual
emission statement regulations for the 2015 ozone standard.

VIII. Statutory and Executive Order Reviews

    Under the CAA, redesignation of an area to attainment and the
accompanying approval of a maintenance plan under section 107(d)(3)(E)
are actions that affect the status of a geographical area and do not
impose any additional regulatory requirements on sources beyond those
imposed by state law. A redesignation to attainment does not in and of
itself create any new requirements, but rather results in the
applicability of requirements contained in the CAA for areas that have
been redesignated to attainment. Moreover, the Administrator is
required to approve a SIP submission that complies with the provisions
of the CAA and applicable Federal regulations. 42 U.S.C. 7410(k); 40
CFR 52.02(a). Thus, in reviewing SIP submissions, EPA's role is to
approve state choices, provided that they meet the criteria of the CAA.
Accordingly, this action merely approves state law as meeting Federal
requirements and does not impose additional requirements beyond those
imposed by state law. For that reason, this action:
     Is not a significant regulatory action subject to review
by the Office of Management and Budget under Executive Orders 12866 (58
FR 51735, October 4, 1993) and 13563 (76 FR 3821, January 21, 2011);
     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, this rule does not have tribal implications as specified by
Executive Order 13175 (65 FR 67249, November 9, 2000), because
redesignation is an action that affects the status of a geographical
area and does not impose any new regulatory requirements on tribes,
impact any existing sources of air pollution on tribal lands, nor
impair the maintenance of ozone NAAQS in tribal lands.

List of Subjects

40 CFR Part 52

    Environmental protection, Air pollution control, Incorporation by
reference, Intergovernmental relations, Oxides of nitrogen, Ozone,
Volatile organic compounds.

40 CFR Part 81

    Environmental protection, Air pollution control, National parks,
Wilderness areas.

    Dated: January 25, 2022.
Debra Shore,
Regional Administrator, Region 5.
[FR Doc. 2022-01943 Filed 1-31-22; 8:45 am]
BILLING CODE 6560-50-P