[Federal Register Volume 75, Number 227 (Friday, November 26, 2010)]
[Rules and Regulations]
[Pages 72705-72719]
[FR Doc No: 2010-29626]

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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R10-OAR-2010-0669; FRL-9231-2]

Approval and Promulgation of Implementation Plans; Idaho

AGENCY: Environmental Protection Agency.

ACTION: Final rule.

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SUMMARY: EPA is approving a State Implementation Plan (SIP) revision
submitted by the State for Idaho for the purpose of addressing the
``good neighbor'' provisions of the Clean Air Act (the Act or CAA)
section 110(a)(2)(D)(i) for the 1997 8-hour ozone National Ambient Air
Quality Standards (NAAQS or standards) and the 1997 PM2.5
NAAQS. This SIP revision addresses the requirement that the State of
Idaho's SIP have adequate provisions to prohibit air emissions from
adversely affecting another state's air quality through interstate
transport. In this action, EPA is approving the Idaho Interstate
Transport SIP provisions that address the requirement of section
110(a)(2)(D)(i) that emissions from Idaho sources do not significantly
contribute to nonattainment of the 1997 8-hour ozone NAAQS and the 1997
PM2.5 NAAQS in any other state, interfere with maintenance
of the 1997 8-hour ozone NAAQS and the 1997 PM2.5 NAAQS in
any other state, and interfere with measures required in the SIP of any
other state under part C of subchapter I of the CAA to prevent
significant deterioration of air quality. This action is being taken
under section 110 and part C of subchapter I of the CAA.

DATES: This action is effective on December 27, 2010.

ADDRESSES: Copies of the State's SIP revision and other information
supporting this action are available for inspection at EPA Region 10,
Office of Air, Waste, and Toxics (AWT-107), 1200 Sixth Avenue, Suite
900, Seattle, Washington 98101.

FOR FURTHER INFORMATION CONTACT: Donna Deneen, EPA Region 10, Office of
Air, Waste, and Toxics (AWT-107), 1200 Sixth Avenue, Seattle,
Washington 98101, or at<PHONE_NUMBER>.

SUPPLEMENTARY INFORMATION: Throughout this document wherever ``we'',
``us'' or ``our'' are used, we mean EPA. Information is organized as
follows:

Table of Contents

I. What action is EPA taking?
II. What is the background for this action?
III. Response to Comments
    A. Comments Relating to the ``Significant Contribution to
Nonattainment'' Element
    B. Comments Relating to the ``Interfere With Maintenance''
Element
    C. Comment Relating to Section 110(l)
IV. Final Action
V. Scope of Action

I. What action is EPA taking?

    EPA is approving a portion of Idaho's Interstate Transport State
Implementation Plan (SIP) revision for the 1997 8-hour ozone and 1997
PM2.5 NAAQS submitted by the Idaho Department of Quality
(IDEQ) on June 28, 2010. Specifically, we are approving the portion of
the plan that addresses

the following elements of CAA section 110(a)(2)(D)(i): (1) Significant
contribution to nonattainment of these NAAQS in any other state, (2)
interference with maintenance of these NAAQS by any other state, and
(3) interference with any other state's required measures to prevent
significant deterioration (PSD) of its air quality with respect to
these NAAQS. IDEQ addressed element (4), interference with any other
state's required measures to protect visibility, by referring to its
Regional Haze SIP, which will be submitted separately. EPA will take
action on the visibility element in a separate action. None of the
findings and conclusions in this notice, accordingly, relate to EPA's
analysis of interference with another state's required measures to
protect visibility. EPA will also take action on the portion of Idaho's
SIP that addresses the 2006 PM2.5 NAAQS \1\ in a separate
action.
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    \1\ The PM2.5 standard was revised in 2006. See
``National Ambient Air Quality Standards for Particulate Matter,''
at 71 FR 61144 (October 17, 2006).
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II. What is the background for this action?

    On July 18, 1997, EPA promulgated new standards for 8-hour ozone
and fine particulate matter (PM2.5). This action is being
taken in response to the promulgation of the 1997 8-hour ozone NAAQS
and 1997 PM2.5 NAAQS. This action does not address the
requirements of the 2006 24-hour PM2.5 NAAQS or the 2008 8-
hour ozone NAAQS; those standards will be addressed in a future action.
    Section 110(a)(1) of the CAA requires states to submit SIPs to
address a new or revised NAAQS within three years after promulgation of
such standards, or within such shorter period as EPA may prescribe.
Section 110(a)(2) lists the elements that such new SIPs must address,
as applicable, including section 110(a)(2)(D)(i) which pertains to
interstate transport of certain emissions. On August 15, 2006, EPA
issued its ``Guidance for State Implementation Plan (SIP) Submissions
to Meet Current Outstanding Obligations Under Section 110(a)(2)(D)(i)
for the 8-hour ozone and PM2.5 National Ambient Air Quality
Standards'' (2006 Guidance) for SIP submissions that states should use
to address the requirements of section 110(a)(2)(D)(i). EPA developed
this guidance to make recommendations to states for making submissions
to meet the requirements of section 110(a)(2)(D) for the 1997 8-hour
ozone standards and 1997 PM2.5 standards.
    On June 28, 2010, we received a SIP revision from the State of
Idaho to address the requirements of section 110(a)(2)(D)(i) for both
the 1997 8-hour ozone NAAQS and 1997 PM2.5 NAAQS. The state
based its submittal on EPA's 2006 Guidance. As explained in the 2006
Guidance, the ``good neighbor'' provisions in section 110(a)(2)(D)(i)
require each state to submit a SIP that contains adequate provisions to
prohibit emissions from sources within that state from adversely
affecting another state in the ways contemplated in the statute.
Section 110(a)(2)(D)(i) identifies four distinct elements related to
the evaluation of impacts of interstate transport of air pollutants. In
this rulemaking EPA is addressing the first three elements: (1)
Significant contribution to nonattainment of these NAAQS in any other
state, (2) interference with maintenance of these NAAQS by any other
state, and (3) interference with any other state's required measures to
prevent significant deterioration (PSD) of its air quality with respect
to these NAAQS. Idaho asserted in its SIP submission that its current
SIP is adequate to prevent such contribution and interference, and thus
no additional controls or revisions are needed with respect to the 1997
8-hour ozone NAAQS and 1997 PM2.5 NAAQS.
    On September 13, 2010, EPA published a proposal to approve the
portion of Idaho's SIP submission that addresses the three elements of
CAA section 110(a)(2)(D) for both the 1997 8-hour ozone NAAQS and 1997
PM2.5 NAAQS: (1) Significant contribution to nonattainment
of these NAAQS in any other state, (2) interference with maintenance of
these NAAQS by any other state, and (3) interference with any other
state's required measures to prevent significant deterioration (PSD) of
its air quality with respect to these NAAQS (75 FR 55494). EPA finds
that Idaho's Interstate Transport SIP provisions addressing elements
(1), (2), and (3) of section 110(a)(2)(D)(i) are consistent with the
requirements of the CAA.

III. Response to Comments

    EPA received one letter from WildEarth Guardians (WG) commenting on
several aspects of EPA's proposed approval of the Idaho Interstate
Transport SIP. These comments addressed the ``significant contribution
to nonattainment,'' and ``interfere with maintenance,'' elements of the
SIP for the 1997 8-hour ozone and 1997 PM2.5 NAAQS. WG also
alleged in its comments that EPA failed to comply with the requirements
of CAA Section 110(l) with respect to the attainment and maintenance of
the current NAAQS. No comments were received that specifically
addressed EPA's proposed approval of the ``interfere with any other
state's required measures to prevent significant deterioration''
elements of the SIP for the 1997 8-hour ozone and 1997 PM2.5
NAAQS. In this section EPA summarizes and responds to the significant
adverse comments submitted by the commenter.

A. Comments Relating to the ``Significant Contribution to
Nonattainment'' Element

    Comment No. 1--WG argued that Idaho and EPA did not appropriately
assess impacts to nonattainment in downwind states. According to WG,
Idaho failed to assess significance of downwind impacts in accordance
with EPA guidance and precedent. The commenter identified statements by
EPA in the context of the 1998 NOX SIP Call as the
applicable guidance for this purpose. WG asserts that, based on the
precedent of the NOX SIP Call, the following issues need to
be addressed in determining whether or not an area is significantly
contributing to nonattainment in downwind states: (a) The overall
nature of the ozone problem; (b) the extent of downwind nonattainment
problems to which the upwind state's emissions are linked; (c) the
ambient impact of the emissions from the upwind state's sources on the
downwind nonattainment problems; and (d) the availability of highly
cost-effective control measures for upwind emissions. 63 FR 57356,
57376 (October 27, 1998).
    EPA Response--EPA disagrees with the commenter's conclusions
regarding the relevant guidance and standards necessary to determine
whether or not a state's emissions contribute significantly to
nonattainment in another state. Section 110(a)(2)(D) does not
explicitly specify how states or EPA should evaluate the existence of,
or extent of, interstate transport and whether such transport is of
sufficient magnitude to constitute ``significant contribution to
nonattainment'' as a regulatory matter. The statutory language is
ambiguous on its face and EPA must reasonably interpret that language
and its application to factual situations before the Agency.
    The NOX SIP Call is one rulemaking in which EPA
evaluated the existence of, and extent of, interstate transport. In
that action, EPA developed an approach that allowed the Agency to
evaluate whether there was significant contribution to ozone
nonattainment across an entire region that was comprised of many
states. That

approach included regional scale modeling and other technical analyses
that EPA deemed useful to evaluate the issue of interstate transport on
that geographic scale and for the facts and circumstances at issue in
that rulemaking. EPA does not agree, however, that the approach used in
the NOX SIP Call is necessarily the only way that states or
EPA may evaluate the existence of, and extent of, interstate transport
in all situations, and especially in situations where the state and EPA
are evaluating the question on a state by state basis, and in
situations where there is not evidence of widespread interstate
transport.
    The commenter failed to acknowledge that EPA issued specific
guidance making recommendations to states about how to address section
110(a)(2)(D) in SIP submissions for the 8-hour ozone and
PM2.5 NAAQS. EPA issued this guidance document, entitled
``Guidance for State Implementation Plan (SIP) Submissions to Meet
Current Outstanding Obligations Under Section 110(a)(2)(D)(i) for the
8-Hour Ozone and PM2.5 National Ambient Air Quality
Standards'' on August 15, 2006 (``2006 Guidance'').\2\ The 2006
Guidance postdated the NOX SIP Call, and was developed by
EPA specifically to address SIP submissions for the 1997 8-hour ozone
and PM2.5 NAAQS. In EPA's proposal, this Guidance was
identified by the Agency as applicable to the analysis before it.
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    \2\ Memorandum from William T. Harnett entitled Guidance for
State Implementation Plan (SIP) Submissions to Meet Current
Outstanding Obligations Under Section 110(a)(2)(D)(i) for the 8-hour
Ozone and PM2.5 National Ambient Air Quality Standards
(Aug. 15, 2006) (``2006 Guidance''), p. 3. An electronic copy is
available for review at the regulations.gov Web site as Document ID
No. EPA-R10-OAR-2010-0669-0005.
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    In the 2006 Guidance, EPA explicitly stated its view that the
``precise nature and contents of such a submission [are] not stipulated
in the statute'' and that the contents of the SIP submission ``may vary
depending upon the facts and circumstances related to the specific
NAAQS.'' \3\ Moreover, within that Guidance, EPA expressed its view
that ``the data and analytical tools available'' at the time of the SIP
submission ``necessarily [affect] * * * the content of the required
submission.'' \4\ To that end, EPA specifically recommended that states
located within the geographic region covered by the ``Clean Air
Interstate Rule'' (CAIR) \5\ comply with section 110(a)(2)(D) for the
1997 8-hour ozone and PM2.5 NAAQS by complying with CAIR
itself. For states outside the CAIR rule region, however, EPA
recommended that states develop their SIP submissions for section
110(a)(2)(D) considering relevant information.
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    \3\ 2006 Guidance at 3.
    \4\ Id.
    \5\ In this action, ``CAIR'' refers to the final rule published
in the May 12, 2005, Federal Register and entitled ``Rule to Reduce
Interstate Transport of Fine Particulate Matter and Ozone (Clean Air
Interstate Rule); Revisions to Acid Rain Program; Revisions to
NOX SIP Call; Final Rule.'' 70 FR 25162.
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    EPA explicitly recommended that relevant information for section
110(a)(2)(D) submissions addressing significant contribution to
nonattainment ``might include, but is not limited to, information
concerning emissions in the state, meteorological conditions in the
state, the distance to the nearest nonattainment area in another state,
reliance on modeling conducted by EPA in determining that such state
should not be included within the ambit of the CAIR, or such other
information as the state considers probative on the issue of
significant contribution.'' \6\ In addition, EPA recommended that
states might elect to evaluate significant contribution to
nonattainment using relevant considerations comparable to those used by
EPA in CAIR, including evaluating impacts as of an appropriate year and
in light of the cost of control to mitigate emissions that resulted in
significant contribution.\7\
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    \6\ 2006 Guidance at 5.
    \7\ Id.
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    WG did not acknowledge or discuss EPA's 2006 Guidance for section
110(a)(2)(D) SIP submissions for the 1997 8-hour ozone and
PM2.5 NAAQS, even though it was specifically identified and
applied in EPA's proposal. EPA believes that the Idaho submission and
EPA's evaluation of it were consistent with EPA's 2006 Guidance for the
1997 8-hour ozone and PM2.5 NAAQS. For example, as discussed
in the proposal notice, the state and EPA considered information such
as monitoring data in Idaho and downwind states, geographical and
meteorological information, and technical studies of the nature and
sources of nonattainment problems in various downwind states. These are
among the types of information that EPA recommended and that EPA
considers relevant under the circumstances of this action. Thus, EPA
has concluded that the state's submission meets the requirements of
section 110(a)(2)(D) and that EPA's evaluation of the state's SIP is
consistent with the applicable 2006 Guidance and the Act.
    Finally, EPA notes that the considerations in the 2006 Guidance are
consistent with the concepts that WG identified as applicable from the
NOX SIP Call: (a) The overall nature of the problem; (b) the
extent of the downwind nonattainment problems to which the upwind
state's emissions are linked; (c) the ambient impact of the emissions
from the upwind state's sources on the downwind nonattainment problems;
and (d) the availability of highly cost-effective control measures for
upwind emissions. These factors were taken into account in EPA's
analysis of the Idaho SIP with the exception of consideration of the
costs of controls for sources. EPA did not evaluate those costs because
the available evidence indicated that there is very little contribution
from emissions from Idaho sources to nonattainment in other states.
    Comment No. 2 --WG objected to EPA's proposed approval on the
grounds that Idaho and EPA failed to adequately analyze and assess the
contribution from Idaho's emissions to downwind states, and did not
conduct an actual assessment of the significance of any such
contribution or impacts.
    EPA Response--EPA disagrees with WG's characterization of Idaho's
and EPA's demonstration and analysis. WG again assumes that section
110(a)(2)(D) explicitly demands the type of modeling analysis that the
commenter advocates throughout its comments. WG contends that any
analytical approach that is not identical to the approach used in the
NOX SIP Call is impermissible. In addition, WG failed to
acknowledge that in other actions under section 110(a)(2)(D), EPA has
used a variety of analytical approaches, short of modeling, to evaluate
whether a specific state is significantly contributing to violations of
the NAAQS in another state (e.g., the west coast states that EPA
concluded should not be part of the geographic region of the CAIR rule
based upon qualitative factors, and not by the zero out modeling EPA
deemed necessary for some other states).
    EPA's analysis took into account meteorological conditions,
monitoring data, distance, topography and other quantitative and
qualitative forms of available information to evaluate and identify a
potentially significant contribution from Idaho's emissions to
nonattainment of the 1997 8-hour ozone and 1997 PM2.5 NAAQS
in other states. As noted in EPA's proposal, no single piece of
information informing this analysis is, by itself, dispositive of the
issue. Instead, the total weight of all the evidence taken together was
used to evaluate significant contributions to violations of the 1997 8-
hour ozone or 1997 PM2.5 NAAQS in another state. Based on
the available information,

using a combination of quantitative data and qualitative analyses, we
concluded emissions from Idaho do not contribute significantly to
downwind ozone nonattainment. Thus, contrary to WG's assertion, EPA did
perform an analysis and assessment that formed a reasonable basis for
the conclusion that emissions from Idaho do not contribute
significantly to downwind ozone and PM2.5 nonattainment,
using a combination of quantitative data and qualitative analyses. EPA
does not agree that the type of analysis advocated by WG is required by
the statute and is necessary to support a rational determination in
this instance.
    Comment No. 3--WG objected to EPA's proposed approval because EPA's
assessment of impacts on downwind states was based upon monitoring data
in those states, and WG alleges that this is not an adequate means of
evaluating significant contribution to nonattainment. WG is concerned
that the impacts of Idaho's emissions in areas without monitors were
not assessed and that EPA only assessed ``impacts to areas that are
designated as nonattainment or with monitors that have recorded
violations of the ozone and PM2.5 NAAQS.'' WG argued that
this reliance on monitoring data is inconsistent with both section
110(a)(2)(D) and with EPA's guidance provided in the NOX SIP
Call. In support of its objections, WG quoted statements from the
NOX SIP Call proposal in which EPA discussed its proposed
interpretation of the statutory phrase ``contribute significantly to
nonattainment'':

    ``The EPA proposes to interpret this term to refer to air
quality and not to be limited to currently-designated nonattainment
areas. Section 110(a)(2)(D) does not refer to `nonattainment areas,'
which is a phrase that EPA interprets to refer to areas that are
designated nonattainment under section 107 (section
107(d)(1)(A)(I)).''

    According to WG, this statement, and similar ones in the context of
the final NOX SIP Call rulemaking, establish that states and
EPA cannot utilize monitoring data to evaluate the existence of, and
extent of, interstate transport. Furthermore, WG interprets the
reference to ``air quality'' in these statements to support its
contention, amplified in later comments, that EPA must evaluate
significant contribution in areas in which there is no monitored
nonattainment.
    EPA Response--EPA disagrees with WG's arguments. First, WG
misunderstands the point that EPA was making in quoted statement from
the NOX SIP Call proposal (and that EPA has subsequently
made in the context of CAIR). When EPA stated that it would evaluate
impacts on air quality in downwind states, independent of the current
formal ``designation'' of such downwind states, it was not referring to
air quality in the absence of monitor data. EPA's point was that it was
inappropriate to wait for either initial designations of nonattainment
for a new NAAQS under section 107(d)(1), or for a redesignation to
nonattainment for an existing NAAQS under section 107(d)(3), before EPA
could assess whether there is significant contribution to nonattainment
of a NAAQS in another state.
    For example, in the case of initial designations, section 107(d)
contemplates a process and timeline for initial designations that could
well extend for two or three years following the promulgation of a new
or revised NAAQS. By contrast, section 110(a)(1) requires states to
make SIP submissions that address section 110(a)(2)(D) and interstate
transport ``within 3 years or such shorter period as the Administrator
may prescribe'' of EPA's promulgation of a new or revised NAAQS. This
schedule does not support a reading of section 110(a)(2)(D) that is
dependent upon formal designations having occurred first. This is a key
reason why EPA determined that it was appropriate to evaluate
interstate transport based upon monitor data, not designation status,
in the CAIR rulemaking and in the matter at hand.
    WG's misunderstanding of EPA's statement concerning designation
status evidently caused WG to believe that EPA's assessment of
interstate transport in the NOX SIP Call was not limited to
evaluation of downwind areas with monitors. This is simply incorrect.
In both the NOX SIP Call and CAIR, EPA evaluated significant
contribution to nonattainment as measured or predicted at monitors. For
example, in the technical analysis for the NOX SIP Call, EPA
specifically evaluated the impacts of emissions from upwind states on
monitors located in downwind states. The NOX SIP Call did
not evaluate impacts at points without monitors, nor did the CAIR
rulemaking. EPA believes that this approach to evaluating significant
contribution is correct under section 110(a)(2)(D), and EPA's general
approach to this threshold determination has not been disturbed by the
courts.\8\
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    \8\ Michigan v. U.S. EPA, 213 F.3d 663, 674-681 (DC Cir. 2000);
North Carolina v. EPA, 531 F.3d 896, 913-916 (D.C. Cir. 2008)
(upholding EPA approach to determining threshold despite remanding
other aspects of CAIR).
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    Finally, EPA disagrees with WG's argument that the assessment of
significant contribution to downwind nonattainment must include
evaluation of impacts on non-monitored areas. First, neither section
110(a)(2)(D)(i)(I) provisions, nor the 2006 Guidance support WG's
position, as neither refers to any requirement or recommendation to
assess air quality in non-monitored areas.\9\ The same focus on
monitored data as a means of assessing interstate transport is found in
the NOX SIP Call and in CAIR. An initial step in both the
NOX SIP Call and CAIR was the identification of areas with
current monitored violations of the ozone and/or PM2.5
NAAQS.\10\ The subsequent modeling analyses for NAAQS violations in
future years (2007 for the SIP Call and 2010 for CAIR) likewise
evaluated future violations at monitors in areas identified in the
initial step. Thus, WG is simply in error that EPA has not previously
evaluated the presence and extent of interstate transport under section
110(a)(2)(D) by focusing on monitoring data. Indeed, such monitoring
data was at the core of both of these efforts. In neither of these
rulemakings did EPA evaluate significant contribution to nonattainment
in areas in which there was no monitor. Reliance on monitoring data is
reasonable and appropriate, because data from a properly placed federal
reference method monitor is the way in which EPA ascertains that there
is a violation of the 1997 8-hour ozone or PM2.5 NAAQS in a
particular area. Put another way, in order for there to be significant
contribution to nonattainment for the 1997 8-hour ozone or
PM2.5 NAAQS, there must be a monitor with data showing a
violation of that NAAQS. EPA concludes that by considering data from
monitored areas, its assessment of whether emissions from Idaho
contribute significantly to ozone or PM2.5 nonattainment in
downwind states is consistent with the 2006 Guidance, and with the
approach used by both the CAIR rule and the NOX SIP Call.
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    \9\ 2006 Guidance, p. 5.
    \10\ ``Based on this approach, we predicted that in the absence
of additional control measures, 47 counties with air quality
monitors [emphasis ours] would violate the 8-hour ozone NAAQS in
2010. * * *'' From the CAIR proposed rule of January 30, 2004 (69 FR
4566, 4581). The NOX SIP call proposed rule action reads:
``* * * For current nonattainment areas, EPA used air quality data
for the period 1993 through 1995 to determine which counties are
violating the 1-hour and/or 8-hour NAAQS. These are the most recent
3 years of fully quality assured data which were available in time
for this assessment,'' 62 FR 60336.
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    Comment No. 4--In support of its comments that EPA should assess
significant contribution to nonattainment in nonmonitored areas,

WG argued that existing modeling performed by another organization
``indicates that large areas of neighboring states will likely violate
the ozone NAAQS.'' According to WG, these likely ``violations'' of the
ozone NAAQS were predicted for the year 2018, as reflected in a slide
from a July 30, 2008, presentation before the Western Regional Air
Partnership (``Review of Ozone Performance in WRAP Modeling and
Relevant to Future Regional Ozone Planning''). WG asserted that:
``Slide 28 of this presentation displays projected 4th highest 8-hour
ozone reading for 2018 and indicates that air quality in areas
throughout Utah, Wyoming, Colorado, and Nevada will exceed and/or
violate the 1997 ozone NAAQS. * * *'' In short, WG argues that modeling
performed by the WRAP establishes that there will be violations of the
1997 8-hour ozone NAAQS in 2018 in non-monitored areas in these western
states.
    EPA Response--EPA disagrees with this comment on several grounds.
First, as explained in response to other comments, EPA does not agree
that it is appropriate to evaluate significant contribution to
nonattainment for the 1997 8-hour ozone NAAQS by modeling ambient
levels in areas where there is no monitor to provide data to establish
a violation of the NAAQS in question. Section 110(a)(2)(D) does not
require such an approach, EPA has not taken this approach in the
NOX SIP Call or other rulemakings under section
110(a)(2)(D), and EPA's prior analytical approach has not been
disturbed by the courts.
    Second, WG's own description of the ozone concentrations predicted
for the year 2018 as projecting ``violations'' of the ozone NAAQS is
inaccurate. Within the same sentence, quoted above, slide 28 is
described as displaying the projected 4th max ozone reading for the
year 2018, and as indicating that ``* * * air quality * * * will exceed
or violate [our emphasis] the 1997 ozone NAAQS.'' By definition, a one
year value of the 4th max above the NAAQS only constitutes an
exceedance of the NAAQS; to constitute a violation of the 1997 8-hour
ozone NAAQS, the standard must be exceeded for three consecutive years
at the same monitor. Thus, even if the WRAP presentation submitted by
WG were technically sound, the conclusion drawn from it by WG is
inaccurate and does not support its claim of projected violations of
the NAAQS in surrounding states.
    EPA has also reviewed the WRAP presentation submitted by WG and
believes that there was a substantial error in the WRAP modeling
software that led to an overestimation of ground level ozone
concentrations. A recent study conducted by Environ for the Four
Corners Air Quality Task Force (FCAQTF; Stoeckenius et al., 2009) has
demonstrated that excessive vertical transport in the CMAQ and CAMx
models over high terrain was responsible for overestimated ground level
ozone concentrations due to downward transport of stratospheric
ozone.\11\ Environ has developed revised vertical velocity algorithms
in a new version of CAMx that eliminated the excessive downward
transport of ozone from the top layers of the model. This revised
version of the model is now being used in a number of applications
throughout high terrain areas in the West. In conclusion, EPA believes
that this key inadequacy of the WRAP model, noted above, makes it
inappropriate support for WG's concerns about large expanses of 8-hour
ozone nonattainment areas projected for 2018 in areas without monitors.
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    \11\ Stoeckenius, T.E., C.A. Emery, T.P. Shah, J.R. Johnson,
L.K. Parker, A.K. Pollack, 2009. ``Air Quality Modeling Study for
the Four Corners Region.'' Prepared for the New Mexico Environment
Department, Air Quality Bureau, Santa Fe, NM, by ENVIRON
International Corporation, Novato, CA.
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    Comment No. 5--As additional support for its assertion that EPA
should require modeling to assess ambient levels in unmonitored
portions of other states, WG relied on an additional study entitled the
``Uinta Basin Air Quality Study (UBAQS).'' The commenter argued that
the UBAQS study further supports its concern that limiting the
evaluation of downwind impacts only to areas with monitors fails to
assess ozone nonattainment in non-monitored areas. According to the
commenter, UBAQS modeling results show that: (a) The Wasatch front
region is currently exceeding and will exceed in 2012 the 1997 8-hour
ozone NAAQS, and (b) based on 2005 meteorological data, portions of the
four counties in the southwest corner of Utah are also currently in
nonattainment and will be in nonattainment in 2012.\12\
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    \12\ The southwestern area referred to by the commenter includes
portions of Washington, Iron, Kane, and Garfield Counties.
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    EPA Response--As noted above, EPA does not agree that it is
appropriate to assess significant contribution to nonattainment for the
1997 8-hour ozone NAAQS in the way advocated by WG. Even taking the
UBAQS modeling results at their face value, however, EPA does not agree
that the 8-hour ozone nonattainment (current and projected) in the
Wasatch Front Range area supports the commenter's concerns about the
need to evaluate the possibility of significant contribution to
nonattainment in non-monitored areas. EPA sees several problems with
the commenter's interpretation of the UBAQS analysis results for
counties in Utah's southwestern corner: ``based on 2005 meteorological
data, portions of Washington, Iron, Kane, and Garfield Counties are
also in nonattainment and will be in nonattainment in 2012.''
    First, WG's interpretation of the predicted ozone concentrations
shown in Figures 4-3a and 4-3b (pages 5 and 6 of the comment letter) is
inaccurate. A close review of the legend in these figures indicates
that the highest ozone concentrations predicted by the model for
portions of the counties noted above are somewhere between 81.00 and
85.99 ppb, but a specific concentration is not provided. If the ozone
concentration is actually predicted to be smaller than or equal to 84.9
ppb, then the area is attaining; if it is predicted as greater than
84.9 ppb then it is not attaining. This means that current and
predicted design values for the southwestern Utah area identified in
Figures 4-3a and 4-3b could both be in attainment or both in
nonattainment, or one of them in attainment and the other in
nonattainment, for the 1997 8-hour ozone NAAQS.
    Second, even if the design values predicted for these unmonitored
areas were at the top of the 81.00-85.99 ppb range, their reliability
would remain questionable. The UBAQS itself identifies and illustrates
major shortcomings of its modeling analysis, only to neglect assessing
the impact of these shortcomings on the modeling results.\13\ The study
deviates in at least two significant ways from EPA's 2007 guidance on
SIP modeling.\14\ One issue is the UBAQS modeling reliance on fewer
than the five years of data recommended by EPA to generate a current 8-
hour ozone design value (DVC). UBAQS relaxed this requirement so that
sites with as little as 1 year of data were included as DVCs in the
analysis. The other issue is the computation of the relative responsive
factor (RRF), which directly affects the modeling's future design value
(DVF).\15\ Again due to unavailability of data satisfying EPA's
recommendation that the RRF be based on a minimum of five days of ozone
concentrations above 85

ppb, UBAQS modeling uses RRFs based on one or more days of ozone
concentrations above 70 ppb.\16\ EPA concludes that the modeling
analysis results used by the WG are unreliable for projecting non-
attainment status and therefore do not support its comments.
---------------------------------------------------------------------------

    \13\ See ``UBAQS,'' pages 4-27 to 4-29.
    \14\ EPA. 2007. Guidance on the Use of Models and other Analyses
for Demonstrating Attainment of Air Quality Goals for Ozone,
PM2.5 and Regional Haze. Office of Air Quality Planning
and Standards, Air Modeling Group. Research Triangle Park, North
Carolina (http://www.epa.gov/scram001/guidance/guide/final-03-pm-rh-guidance.pdf).
    \15\ DVC x RRF = DVF.
    \16\ See UBAQS, p. 4-28.
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    Comment No. 6--In support of its arguments that EPA should not
limit assessment of significant contribution to nonattainment through
evaluation of impacts at monitors, but include, through a modeling
analysis, impacts where there are no such monitors, the commenter cited
a past statement by EPA to the effect that the monitor network in the
western United States needs to be expanded. The quoted statements
included EPA's observation that ``[v]irtually all States east of the
Mississippi River have at least two to four non-urban O3 monitors,
while many large mid-western and western States have one or no non-
urban monitors.'' 74 FR 34,525 (July 16, 2009). From this statement,
the commenter argues that it is not appropriate for EPA to limit the
evaluation of significant contribution to nonattainment in other states
to a consideration of monitor data instead of modeling ambient
pollutant levels because there are states with few or no non-urban
monitors surrounding Idaho.
    EPA Response--EPA acknowledges that WG's observation that there are
relatively few monitors in the western states, and that relatively few
monitors are currently located in non-urban areas of western states, is
factually correct. However, the commenter failed to note that the
quoted statement from EPA concerning the adequacy of western monitors
came from the Agency's July 16, 2009, proposed rulemaking entitled
``Ambient Ozone Monitoring Regulations: Revisions to Network Design
Requirements.'' This statement was taken out of context, because EPA
was in that proposal referring to changes in state monitoring networks
that it anticipates will be necessary in order to implement not the
1997 8-hour ozone NAAQS that is the subject of this rulemaking, but
rather the 2008 ozone NAAQS for which there are concerns that there
will be a need to evaluate ambient levels in previously unmonitored
areas of the western United States. The fact that additional monitors
may be necessary in the future for the newer ozone NAAQS does not
automatically mean that the existing ozone monitoring networks are
insufficient for the 1997 8-hour ozone NAAQS, as the commenter implies.
Indeed, states submit annual monitoring network plans to EPA and EPA
evaluates these to insure that they meet the applicable requirements.
For example, Idaho itself submits just such a report on an annual
basis, and EPA reviews it for adequacy.\17\ All other states submit
comparable reports.
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    \17\ EPA most recently reviewed the adequacy of the Idaho
monitoring network on October 14, 2010. See letter dated October 14,
2010 from Debra Suzuki, EPA Region 10, to Dave Broker, IDEQ.
---------------------------------------------------------------------------

    Comment No. 7--WG objected to EPA's proposed approval of the Idaho
SIP submission because neither Idaho nor EPA performed a specific
modeling analysis to assure that emissions from Idaho sources do not
significantly contribute to nonattainment in downwind states. According
to the commenter, EPA's decision to use a qualitative approach to
determine whether emissions from Idaho contribute significantly to
downwind nonattainment is not consistent with its own preparation of a
regional model to evaluate such impacts from other states as part of
CAIR.
    EPA Response--EPA disagrees with WG's proposition that only
modeling can establish whether or not there is significant contribution
from one state to the nonattainment of another. First, as noted above,
EPA does not believe that section 110(a)(2)(D) requires a modeling
analysis in all instances. While modeling can be useful, EPA believes
that other forms of analysis can be sufficient to evaluate whether or
not there is significant contribution to nonattainment. For this
reason, EPA's 2006 Guidance recommended other forms of information that
states may rely upon as part of their section 110(a)(2)(D) submissions
for the 1997 8-hour ozone and 1997 PM2.5 NAAQS. EPA has
concluded that its qualitative approach to the assessment of
significant contribution to downwind ozone and PM2.5
nonattainment is consistent with EPA's 2006 Guidance.
    Second, EPA notes that WG's comment also reflects a
misunderstanding of the approach EPA used in the remanded CAIR. In
CAIR, EPA determined that several factors provided a reasonable basis
to exclude certain western states from the ambit of that rulemaking:
``[i]n analyzing significant contribution to nonattainment, we
determined it was reasonable to exclude the Western U.S., including the
states of Washington, Idaho, Oregon, California, Nevada, Utah, and
Arizona from further analysis due to geography, meteorology, and
topography. Based on these factors we concluded that the
PM2.5 and 8-hour ozone nonattainment problems are not likely
to be affected significantly by pollution transported across these
States' boundaries. * * *'' 69 FR 4581 (January 30, 2004).
    EPA has taken a similar approach to assess whether Idaho
contributes significantly to violations of the 1997 8-hour ozone and
PM2.5 NAAQS in downwind states. In the proposed action, EPA
explained several forms of substantive and technically valid evidence
that led to the conclusion that emissions from Idaho sources do not
contribute significantly to nonattainment, in accordance with the
requirement of Section 110(a)(2)(D).
    Comment No. 8--In further support of its argument that EPA must use
modeling to evaluate whether there is significant contribution to
nonattainment under section 110(a)(2)(D), WG noted that EPA itself asks
other agencies to perform such modeling in other contexts. As examples,
the commenter cited four instances in which EPA commented on actions by
other agencies and recommended the use of a modeling analysis to assess
ozone impacts prior to authorizing oil and gas development projects. As
supporting material, the comment includes quotations from and
references to EPA letters to Federal Agencies on assessing impacts of
oil and gas development projects.\18\ WG questioned why EPA's
recommendation for such an approach in its comments to other Federal
Agencies did not result in its use of the same approach to evaluate the
impacts from Idaho emissions and to insure compliance with Section
110(a)(2)(D)(i)(I). The commenter reasoned that the emissions that
would result from the actions at issue in the other agency decisions,
such as selected oil and gas drilling projects, would be of less
magnitude and importance than the statewide emissions at issue in an
evaluation under section 110(a)(2)(D).
---------------------------------------------------------------------------

    \18\ WG's October 13, 2010, comment letter, pp. 9-10. The
referenced letters have been included in the docket for this action.
---------------------------------------------------------------------------

    EPA Response--As explained above, EPA disagrees with WG's
fundamental argument that modeling is required to evaluate significant
contribution to nonattainment, whether by section 110(a)(2)(D), by EPA
guidance, or by past EPA precedent. EPA's applicable guidance made
recommendations as to different approaches that can satisfy the
interstate transport requirements for significant contribution to
nonattainment in other states. Even EPA's own CAIR analysis relied on a
combination of qualitative and quantitative analyses, as explained
above. As indicated in our response to

Comment No. 7, the CAIR analysis excluded the western states based on a
qualitative assessment of the regions topography, geography and
meteorology.\19\
---------------------------------------------------------------------------

    \19\ 69 FR 4581, January 30, 2004.
---------------------------------------------------------------------------

    EPA believes that the commenter's references to EPA statements
commenting on the actions of other agencies are inapposite. As WG is
aware, those comments were made in the context of the evaluation of the
impacts of various federal actions pursuant to the National
Environmental Policy Act (NEPA), not the Clean Air Act. As explained
above, section 110(a)(2)(D) governs this particular decision-making
process, and EPA does not agree that modeling is always required to
support the evaluation. EPA itself has relied on qualitative evidence
for this purpose when the relevant record provides evidence sufficient
to reach a reasoned determination.
    Comment No. 9--In further support of its argument that EPA should
always require modeling to evaluate significant contribution to
nonattainment, WG referred to EPA regulations governing nonattainment
SIPs. The commenter referenced 40 CFR 51.112(a)(1), which states that:
``[t]he adequacy of a control strategy shall be demonstrated by means
of applicable air quality models, data bases, and other requirements
specified in appendix W of [Part 51] (Guideline on Air Quality
Models).'' The commenter argued that this regulation supports its
position that modeling is required to satisfy the significant
contribution element of 110(a)(2)(D).
    EPA Response--EPA disagrees with this comment. The cited language
addresses the control strategy requirements when the necessity of
controls has already been established. The cited provision requires a
modeling analysis to demonstrate the adequacy of the control strategy
developed to achieve the reductions necessary to prevent an area's air
quality from continuing to violate the NAAQS. EPA's determination that
emissions from Idaho do not contribute significantly to nonattainment
for the 1997 8-hour ozone standard in any other states eliminates the
need for a control strategy aimed at satisfying the section
110(a)(2)(D) requirements. The provision cited by the commenter,
therefore, is inapplicable in this context. Moreover, EPA interprets
the language at 40 CFR 51.112(a): ``[e]ach plan must demonstrate that
the measures, rules, and regulations contained in it are adequate to
provide for the timely attainment and maintenance of the national
standard that it implements,'' to refer to modeling for attainment
demonstrations, an integral part of nonattainment area SIPs under
subchapter I, part D of the CAA. This interpretation was upheld by the
Sixth Circuit Court of Appeals. Wall v. U.S. EPA, 265 F.3d 426, 436
(6th Cir. 2001). Thus, the commenter's cited regulation is not relevant
to EPA's technical analysis assessing whether emissions from Idaho
contribute significantly to nonattainment in any other states under
section 110(a)(2)(D).
    Comment No. 10--WG referenced several modeling analyses of
emissions in the western United States which it contends renders EPA's
analysis inadequate. The commenter ``challenged'' EPA to prove the
modeling results it presented are insufficient by presenting a contrary
modeling analysis, and argued that EPA has an obligation to do so.
    Response: EPA disagrees with WG's contention that EPA is obligated
to evaluate and disprove the modeling analyses it has submitted with a
competing modeling analysis when other available information is
available to dispute the modeling analysis. EPA's interpretation of
section 110(a)(2)(D) is that the statute does not explicitly require
modeling, and while modeling can be useful in certain circumstances,
there is no obligation to use it to evaluate whether or not there is
significant contribution to nonattainment. Section 110(a)(2)(D)(i) does
not specify the forms of evidence to be used for meeting the
requirements, and the 2006 Guidance specifically recommends other forms
of information that states might wish to evaluate as part of their
section 110(a)(2)(D) submissions. We evaluated whether Idaho's SIP met
the requirement of section 110(a)(2)(D)(i) based on EPA's 2006 Guidance
and have a reasonable basis, as discussed in the proposed approval, for
concluding that Idaho has met the requirement of 110(a)(2)(D)(i) for
the 1997 8-hour ozone and 1997 PM2.5 NAAQS in the absence of
a modeling analysis.
    Comment No. 11--WG also objected to EPA's proposed approval of the
Idaho submission on the grounds that it was based upon a ``weight-of-
evidence analysis,'' and that no such weight of evidence test appears
in the CAA generally, or in section 110(a)(2)(D) in particular.
According to the commenter, there is no regulatory support for using a
``weight-of-evidence'' approach to assessing air quality impacts. The
commenter asserted that EPA neither cited nor quoted regulations or
policy that provides for this, and failed to lend any specific meaning
to the phrase through its proposed approval. Finally, the commenter
asserted, without explaining, its belief that EPA failed to address
``several relevant factors related to the determination of whether
Idaho contributes significantly to nonattainment undermines the
agency's reliance on any `weight-of-evidence' approach.''
    EPA Response--EPA agrees with WG that neither the CAA generally,
nor section 110(a)(2)(D) specifically, include the explicit phrase
``weight of evidence.'' It simply does not follow, however, that it is
inappropriate for EPA to use such an approach in this context. As
explained above, section 110(a)(2)(D) does not explicitly stipulate how
EPA may assess whether there is a significant contribution to
nonattainment in other states. Through past actions such as CAIR, EPA
has used a weight of evidence approach to exclude some states from
further consideration.\20\ As described above, in EPA's 2006 Guidance
the Agency specifically recommended types of information that states
might wish to rely upon to evaluate the presence of, and extent of,
interstate transport for this purpose. EPA believes that a weight of
evidence approach that properly considers appropriate evidence is
sufficient to make a valid determination, as in this case.
---------------------------------------------------------------------------

    \20\ See: 69 FR 4581, January 30, 2004.
---------------------------------------------------------------------------

    Specifically, EPA's technical analysis in the September 13, 2010
proposed action underscores its reliance on implementation policies set
in the EPA 2006 Guidance: ``EPA's August 15, 2006, guidance to states
concerning section 110(a)(2)(D)(i) recommended various methods by which
states might evaluate whether or not its emissions significantly
contribute to violations of the 1997 ozone standards in another state.
Among other methods, EPA recommended consideration of available EPA
modeling conducted in conjunction with CAIR, or in the absence of such
EPA modeling, consideration of other information such as the amount of
emissions, the geographic location of violating areas, meteorological
data, or various other forms of information that would be relevant to
assessing the likelihood of significant contribution to violations of
the NAAQS in another state [our emphasis].'' \21\ On the basis of this
Guidance, Idaho and EPA chose to assess the impacts of emissions from
Idaho sources on nonattainment areas for the 1997 ozone NAAQS and 1997
PM2.5 NAAQS in surrounding states through a weight of
evidence approach

using quantitative and qualitative information such as monitoring data
for those other states, Idaho's distance from areas with monitors
showing violation of the NAAQS, meteorological conditions, and other
characteristics for those areas. EPA's use of a weight of evidence
analysis is by no means unusual for the assessment of ozone impacts
through long range transport. The same analytical framework was used in
the 1998 NOX SIP Call, as indicated under Section II.C.,
entitled ``Weight-of-Evidence Determination of Covered States.'' \22\
The differences between the specific types of evidence used in the
NOX SIP Call and in our analysis do not invalidate the use
of the weight of evidence approach.
---------------------------------------------------------------------------

    \21\ 75 FR 55494, September 13, 2010.
    \22\ ``As discussed above, EPA applied a multi-factor approach
to identify the amounts of NOX emissions that contribute
significantly to nonattainment.* * *'' 1998 SIP Call, 63 FR 57381,
October 27, 1998.
---------------------------------------------------------------------------

    As for the commenter's argument that EPA ``fails to lend any
specific meaning to the phrase through its proposed approval,'' the
Agency's technical analysis described in the proposal did specify the
characteristics, including limitations, of a weight of evidence
analysis: ``[f]urthermore * * * EPA notes that no single piece of
information is by itself dispositive of the issue. Instead, the total
weight of all the evidence taken together is used to evaluate
significant contributions to violations of the 1997 8-hour ozone or
1997 PM2.5 NAAQS in another state.'' (75 FR 55496).
    Finally, as to the commenter's assertion that EPA failed to
consider ``several relevant factors'' and thus failed to conduct an
appropriate weight of evidence evaluation, EPA cannot weigh the
validity of this comment in the absence of an explanation of what these
factors might be.
    Comment No. 12--WG questioned whether a regulatory provision from
Idaho's SIP, IDAPA <IP_ADDRESS>.02, that was identified in the
proposed action constitutes a ``prohibition on emissions that
significantly interfere with nonattainment.'' \23\ WG argued that this
provision does not appear to ensure compliance with section
110(a)(2)(D)(i)(I) because, the commenter explains, the provision
applies only to stationary sources (actually point sources) and not to
mobile or field burning emissions, and that all sources must be
considered in order to meet the requirements of the statute. The
commenter alleged that 110(a)(2)(D)(i)(II) applies to any source or
other type of emission activity and, therefore, Idaho's SIP provision
is inadequate if it is limited in its application to stationary
sources. WG went on to identify emission inventory information to
support its argument that mobile source emissions and agricultural
burning emissions are significant sources of emissions in Idaho. The
commenter questioned the assertion that the abovementioned regulatory
provision provides authority to limit a source's emissions to ensure
attainment in other states. WG also questioned how the provision would
apply in attainment areas. Finally, the commenter concluded that the
Idaho SIP does not appear to contain provisions that effectively
prohibit emissions from any source from significantly contributing to
nonattainment in any other state.
---------------------------------------------------------------------------

    \23\ EPA notes that WG appears to have incorrectly stated and
conflated the two different standards presented in CAA section
110(a)(2)(D)(i)(I) in this comment. EPA assumes that, due to the
placement of this comment in a section that WG entitled ``Measures
in the SIP do not Appear to Ensure that Idaho will not Significantly
Contribute to Nonattainment'' and statements made later in the
comment, that the comment applies only to EPA's proposed approval of
the nonattainment prong of 110(a)(2)(D)(i)(I) and was not provided
in reference to the maintenance prong.
---------------------------------------------------------------------------

    EPA Response--EPA agrees with the commenter's assertion that the
requirements of section 110(a)(2)(D)(i)(I) are applicable to all source
categories and not only to stationary sources. The commenter seems to
have read EPA's proposed action to imply that the provisions cited by
Idaho are the only consideration in evaluating whether Idaho has met
the requirement regarding whether or not a state's emissions
significantly contribute to violations of 1997 ozone and 1997
PM2.5 standards in another state. In fact, these provisions,
which provide IDEQ with the authority to require a permit if emission
rate reductions are necessary to attain any ambient air quality
standard, were identified by EPA in the proposed action as ``additional
support for [EPA's] conclusion that emissions from Idaho sources do not
significantly contribute to nonattainment in any other state * * *.''
As noted in EPA's proposed action, no single piece of information was
by itself dispositive in evaluating Idaho's potential contribution to
nonattainment in another state. EPA has taken into account the Idaho
SIP as a whole, which includes but is not limited to the cited
permitting provisions, and the actual contribution of emissions from
Idaho to nonattainment receptors in other states to evaluate whether
the significant contribution element has been met.
    EPA disagrees with the commenter's apparent view that under section
110(a)(2)(D) SIPs must contain literal provisions prohibiting
significant contribution to nonattainment in any other state, or, for
that matter, to contain any particular words or generic prohibitions.
Instead, EPA believes that the statute requires a state's SIP to
contain substantive emission limits or other provisions that in fact
ensure that sources located within the state will not produce emissions
that have such an effect in other states. In conducting its analysis of
whether or not the state's SIP is adequate, EPA evaluates the actual
contribution of a state's emissions to nonattainment in another state
and does not base its analysis on the written provisions of the SIP
alone. Therefore, EPA believes that satisfaction of the ``significant
contribution'' requirement is not to be demonstrated through a literal
requirement for a prohibition of the type advocated by the commenter.
    EPA's past application of section 110(a)(2)(D) did not require the
literal prohibition advocated by the commenter. For example, in 1998
NOX SIP call (63 FR 57356, October 27, 1998) EPA indicated
that ``the term `prohibit' means that SIPs must eliminate those amounts
of emissions determined to contribute significantly to nonattainment *
* *.'' As a result, the first step of the process to determine whether
this statutory requirement is satisfied is the factual determination of
whether a state's emissions contribute significantly to nonattainment
in downwind areas. See 2005 CAIR Rule (70 FR 25162) and 1998
NOX SIP Call (63 FR 57356). If this factual finding is in
the negative, as is the case for EPA's assessment of the contribution
from emissions from Idaho, then section 110(a)(2)(D)(i)(I) does not
require any changes to a state's provisions. If, however, the
evaluation reveals that there is such a significant contribution to
nonattainment in other states, then EPA requires the state to adopt
substantive provisions to eliminate those emissions. The state could
achieve these reductions through traditional command and control
programs, or at its own election, through participation in a cap and
trade program. Thus, EPA's approach in this action is consistent with
the Agency's interpretation of 110(a)(2)(D)(i) in the 2006 guidance,
the CAIR Rule, and the NOX SIP call, none of which required
the pro forma literal ``prohibition'' of the type advocated by the
commenter.

B. Comments Relating to the ``Interfere With Maintenance'' Element

    Comment No. 1--The commenter stated that EPA inappropriately
defined the term ``interfere with maintenance.'' It argued that EPA's
definition appeared to be ``inappropriately conflated with the

definition of nonattainment.'' It argued that the definition of
maintenance appeared to be tied to nonattainment, asserting that
``unless an area has violated or is in violation of the NAAQS, the
agency will not consider whether Idaho is interfering with that area's
ability to maintain compliance with the NAAQS.'' For this reason, it
argued EPA did not give independent meaning to the ``interfere with
maintenance'' prong of section 110(a)(2)(D)(i)(I).
    The commenter also maintains that EPA's analysis did not consider
Idaho's impacts on neighboring states that have not previously
violated, but that ``may be barely attaining the NAAQS.'' To illustrate
its contention that EPA has inappropriately defined ``interference with
maintenance,'' the commenter pointed to information regarding Cache
Valley, Utah, which it describes as an example of an area that has not
violated the 1997 24-hour PM2.5 NAAQS, but that may be
barely attaining the NAAQS and should, therefore, be classified as a
maintenance receptor. The commenter did not provide any other concrete
examples of areas that EPA should have identified as maintenance
receptors.
    Response--The definition of maintenance used by EPA is consistent
with the direction given to EPA by the Court of Appeals for the DC
Circuit in North Carolina v. EPA, 531 F.3d 896 (DC Cir. 2008).\24\ In
that case, the court analyzed the definition of ``interfere with
maintenance'' used in the CAIR rule. The court found that the
definition EPA used ``gave no independent significance to the
`interfere with maintenance' prong of section 110(a)(2)(D)(i)(I) to
separately identify upwind sources interfering with downwind
maintenance.'' North Carolina at 910. It further reasoned that
``[u]nder EPA's reading of the statute, a state can never ``interfere
with maintenance'' unless EPA determines that at one point it
``contribute[d] significantly to nonattainment.'' Id. Based on this
analysis, the court found the definition unlawful holding that
``[b]ecause EPA describes CAIR as a complete remedy to a section
110(a)(2)(D)(i)(I) violation and does not give independent significance
to the 'interfere with maintenance' language to identify upwind states
that interfere with downwind maintenance, EPA unlawfully nullifies that
aspect of the statute and provides no protection for downwind areas
that, despite EPA's predictions, still find themselves struggling to
meet NAAQS due to upwind interference in 2010.'' Id. at 910-911.
---------------------------------------------------------------------------

    \24\ As EPA noted in the proposal, the term ``interfere with
maintenance'' is not defined in the CAA. As such, the term is
ambiguous and EPA's interpretation of that term in this action is
both reasonable and consistent with the overall goals of the CAA. By
this approach, EPA is giving independent meaning to the term and
supporting that interpretation with technical analysis to apply it
to the facts of this action.
---------------------------------------------------------------------------

    The approach used by EPA to evaluate Idaho's SIP submission and to
determine whether emissions from sources in Idaho interfere with
maintenance in any other state directly addresses these flaws. It gives
significant independent meaning to the term ``interfere with
maintenance.'' It establishes a process to identify any specific
receptors in downwind states that, even though they are projected to be
in attainment and thus would not be nonattainment receptors, may have
difficulty maintaining the NAAQS in question. These receptors are
referred to as maintenance receptors.
    The methodology EPA used to identify maintenance receptors gives
independent meaning to the term ``interfere with maintenance'' and
establishes a process to identify projected attainment receptors that,
based on the historic variability of air quality at that site (which
may be due to variability in emissions and/or meteorology), may have
difficulty maintaining the standard. As explained in greater detail
below, the commenter's objection to EPA's approach appears to be based
on the misconception that the methodology EPA used to identify
maintenance sites was dependent on base year NAAQS violations.
    The commenter's statement that EPA's designation of maintenance
receptors is ``firmly hitched to a finding that the maximum design
value based on a single three-year period between 2003 and 2007 is in
excess of the NAAQS'' appears to be based on a misunderstanding of the
methodology used by EPA to identify maintenance receptors. EPA's
methodology did not, as the commenter appears to assume, require a site
to have a design value above the NAAQS for one of the three base
periods (2003-2005, 2004-2006, 2005-2007) to be considered a
maintenance site. The methodology is based on an analysis of the future
year average and future year maximum design values. It does not depend
on whether the base year design values exceed the NAAQS. In the
proposal, EPA explained that ``EPA identified those sites that are
projected to be attainment based on the 5-year weighted average design
value, but that have a maximum design value (based on a single three-
year period) that exceeds the NAAQS, as maintenance sites.'' (75 FR
52697). The maximum design value referenced in this sentence is the
maximum future design value calculated using each of the three base
design value periods separately. Whether or not one of the three base
period design values exceeded the NAAQS was not a factor considered in
determining whether a site was a maintenance receptor.
    To better understand this concept, it is useful to compare the
methodologies used in the Transport Rule (TR) proposal (75 FR 45210,
Aug. 2, 2010) to identify nonattainment and maintenance receptors. In
the TR proposal, base period (2003-2007) ambient data were projected to
the future (using model outputs), to identify both nonattainment and
maintenance receptors. In both cases, receptors were identified by
projected future design values; however, because more conservative data
were used for the maintenance analysis, this analysis could identify
receptors that were projected by the nonattainment analysis to be in
attainment, yet might have difficulty attaining the standard due to
historic variability of air quality at that site. To identify future
nonattainment sites EPA calculated the future year design values by
projecting the 5-year weighted average design value for each site. Only
if this future year design value exceeded the NAAQS was the site
considered to be a nonattainment receptor. However, to identify
projected maintenance sites we used a different methodology that took
into account historic variability in air quality at each receptor. For
this approach EPA calculated the maximum future year design value by
processing each of the three base design value periods (2003-2005,
2004-2006, and 2005-2007) separately. The highest of the three future
values is the maximum design value, which is used to determine
maintenance receptors.
    In this way, EPA's analysis identifies those areas that are
projected to be attainment, but may have difficulty maintaining
attainment of the standard, for example in a year with particularly
severe meteorology (weather that is conducive to ozone and/or
particulate formation). In other words, this analysis does exactly what
the DC Circuit directed EPA to do in North Carolina, 531 F.3d 896. It
gave independent meaning to the ``interfere with maintenance'' prong of
110(a)(2)(D)(i) and is providing protection to any areas that, although
they are predicted to attain the standard (and thus upwind sources
could not be found to significantly contribute to nonattainment in that
area) may have

difficulty maintaining the standard. North Carolina. at 911.
    EPA used this same approach to identify any potential maintenance
receptors for purposes of evaluating Idaho's SIP submission. For the
reasons explained above, this approach is both reasonable and
consistent with the direction given to EPA by the DC Circuit in North
Carolina.
    As explained above, EPA established a methodology to identify sites
that may have difficulty maintaining the 1997 8-hour ozone or 1997
PM2.5 NAAQS. This process identifies any specific receptors
in downwind states that, even though they are projected to be in
attainment and thus would not be nonattainment receptors, may have
difficulty maintaining the NAAQS in question. Based on this
methodology, EPA projected that the Cache Valley in Utah will not have
difficulty meeting the 1997 8-hour ozone NAAQS or the 1997
PM2.5 NAAQS because none of the future year design values
exceeded the NAAQS and Cache Valley is not a maintenance receptor.
    EPA notes that, except for Cache Valley, Utah, the commenter
provides no specific examples or facts to support its arguments that
there are areas in neighboring states which are ``barely attaining the
NAAQS.'' In the absence of any specific comments regarding the location
of monitoring receptors, monitoring concentrations, or time periods
during which these areas were purportedly ``barely attaining'' the
NAAQS, EPA cannot respond to the commenter's generic concerns about
interference with maintenance in the neighboring states of Montana,
Nevada, Oregon, Montana, Wyoming, and other areas of Utah. EPA's
analysis shows that there are no sites in any states adjacent to Idaho
with design values exceeding the 65 ug/m\3\ which should accordingly be
identified as maintenance receptors.
    WG provided only the example of Cache Valley, Utah, as an area that
EPA should have identified as a maintenance receptor. The commenter
appears to implicitly argue that EPA has inappropriately established an
interference with maintenance threshold, although it did not identify
specific criteria that should warrant designating an area as a
maintenance receptor. Even if EPA did not rely on the methodology
discussed above to give meaning to the ``interfere with maintenance''
prong of section 110(a)(2)(D), the commenter's argument that Cache
County is ``barely attaining'' the NAAQS is not persuasive. The data
pointed to by the commenter is not sufficient to support a reasonable
conclusion that the area warrants evaluation as a maintenance receptor.
The commenter identified the four highest monitored values for
PM2.5 at the Cache County monitor for each year from 2005
through 2010. However, EPA's regulations establish that attainment of
the PM2.5 NAAQS is determined when the three-year average of
the 98th percentile value at each monitoring site is less than or equal
to 65 [mu]g/m\3\. The 98th percentile value for Cache County cannot be
evaluated by considering only the four highest monitored readings
during each of the years cited by the commenter. In fact, all of the
values cited by the commenter would be eliminated from consideration in
an attainment analysis. EPA concludes that this data is not
sufficiently persuasive to warrant identifying Cache County as a
maintenance receptor.
    Although the commenter did not provide a full data set in its
comments, EPA has analyzed a complete data set for the Cache County
monitor and determined that the highest three year-average of the 98th
percentile for the monitor is only 66% of the standard. EPA computed
the highest 3-year average of the 98th percentile values for each of
the three-year periods covered by the 2005-2010 period that the
commenter references. The highest value for any complete three-year
periods was 42 [mu]g/m\3\, well below 65 [mu]g/m\3\. EPA disagrees with
the commenter's conclusion that there is a reasonable basis for
characterizing this area as ``barely attaining'' the NAAQS or one that
warrants additional evaluation as a maintenance receptor.
    Comment No. 2--The commenter cited a variety of information
suggesting that receptors in the Denver/North Front Range (Denver/NFR)
area should also be considered for maintenance purposes under
110(a)(2)(D)(i) in this action. The commenter points out that as EPA
itself has stated that ``Data for 2005-2007 and 2006-2008 reflect
violations of the 8-hour ozone NAAQS at the Rocky Flats North monitor
(values of {0.085{time}  and 0.086 ppm, respectively).'' The commenter
also argued that modeling prepared in conjunction with Colorado's
Denver/NFR attainment demonstration shows that by 2010, the three-year
design value is only projected to be lowered to 0.084 parts per
million, barely in compliance with the NAAQS, and that certain portions
of the Denver/NFR area of Colorado would violate the 1997 ozone NAAQS
in 2010 at grid cells west of Fort Collins. The commenter referenced
several documents that are part of the Colorado's Denver/NFR 8-hour
Ozone Attainment Demonstration in support of its arguments. The
commenter cited the report's language that indicated that the modeling
projection of a value above the 1997 8-hour standard to the west of
Fort Collins is not ``implausible'' explaining, ``[i]n the case of the
Denver ozone modeling, higher ozone concentrations are estimated west
of Fort Collins than at the locations of the two monitors in Fort
Collins on some days and this does not appear to be an error in the
modeling system''.\25\
---------------------------------------------------------------------------

    \25\ Commenter referenced the Colorado Department of Public
Health and Environment's ``2010 Ozone Attainment Demonstration
Modeling for the Denver 8-hour Ozone State Implementation Plan
Control Strategy'' and the Environ modeling report ``Final 2010
Ozone Attainment Demonstration Modeling for the Denver 8-hour Ozone
State Implementation Plan''
---------------------------------------------------------------------------

    The commenter argued that EPA's failure to consider the Denver/NFR
area as a receptor for evaluating interference with maintenance in this
action reflects the very problem that the DC Circuit warned could
result without giving independent meaning to the term ``interfere with
maintenance.''
    Response--EPA disagrees with the commenter's argument that EPA has
inappropriately identified the correct monitors for maintenance
receptors. As discussed in greater detail in the previous response to
comment, EPA has selected a method that identifies maintenance
receptors separately from nonattainment receptors and gives an
independent meaning to the interfere with maintenance prong of section
110(a)(2)(D)(i). EPA has consistently applied this method to all
potential receptors in states potentially impacted by Idaho's emissions
including those in the Denver/NFR area.
    The commenter's argument that EPA did not consistently identify
maintenance receptors is premised on the same fundamental
misunderstanding (discussed in the previous response to comment
addressing the ``interfere with maintenance'' prong) that EPA's
identification of nonattainment receptors was based on current or past
NAAQS violations. As explained above, this is not correct. EPA did not
base its identification of maintenance receptors on an analysis of
whether air quality at those receptors exceeded the NAAQS in the base
years. The methodology EPA used to identify maintenance areas takes
into account historic variability of emissions at specific monitoring
sites to analyze whether or not monitoring sites projected to be in
attainment in 2012 will nonetheless remain at risk of slipping into
nonattainment in that year. The commenter provided a number of modeling
or monitoring analyses for

2010 or earlier. As we have addressed in responses elsewhere in this
notice, EPA continues to believe 2012 is the appropriate year for this
analysis. Thus, modeling or monitoring data for other years is not
directly relevant to this rulemaking. Nonetheless, below we address the
commenter's specific assertions about the modeling.
    The commenter asserts that monitoring data for 2005-07 and 2006-08
for the Rocky Flats North monitor reflect violations of the 8-hour
NAAQS and therefore EPA should consider this Rocky Flats North monitor
as a ``maintenance receptor.'' The commenter further cites to modeling
prepared in conjunction with Colorado's Denver/NFR attainment
demonstration to support its assertion that EPA has applied
inconsistently its definition of interference with maintenance. The
modeling data referenced by the commenter, however, only identifies
monitors that, in the commenter's view, are at risk of being in
nonattainment or having maintenance problems in 2010. The monitoring
data cited indicates high ozone levels in the past. The underlying
issue raised is thus substantively the same as that raised in Comment
No. 3 below which argues that EPA's analysis is faulty because it
identifies receptors likely to have difficulty maintaining the standard
in 2012 and not at the present or in the past. EPA's response to
Comment No. 3 below, illustrates how its approach, based on modeling
analyses that identify receptors at risk for maintenance in the year
2012, is appropriate and consistent with the D.C. Circuit decision in
North Carolina v. EPA.
    EPA's method is based on model projection values that take into
account multi-year variability in ozone data at specific monitors. For
identification of maintenance receptors, EPA utilized the monitoring
data from the 2003-2007 period to calculate 2012 future year modeling
design value projections. The 2003-07 period includes three Design
Value (DV) periods (2003-2005, 2004-2006, and 2005-2007). The 2012
future year DVs were calculated by multiplying a 3-year DV (base year)
by the ratio of the Future Year average of the daily 8-hour ozone
maximums around a monitor over the Base Year average of the daily 8-
hour ozone maximums around a monitor. This calculation was performed
for each of the three 3-year DVs (2003-2005, 2004-2006, and 2005-2007).
This approach yielded three different projected 2012 design values and
thus, tests for variability in meteorology. If any of the three 2012
projections was above the 1997 ozone standard, then the receptor would
be considered a maintenance receptor. None of the 2012 projections for
the Denver/NFR area was above the standard so the area was not
considered a maintenance area. This approach was the same as the
approach used for every potential receptor evaluated. It is worth
noting that EPA's analysis included the 2005-2007 data for the Rocky
Flats monitor (which is one of the highest monitored DVs in recent
years for this monitor) that the commenter raised as a concern and
pursuant to its methodology as previously described EPA's analysis
determined that the Rocky Flats monitor would not be a maintenance
receptor in 2012.
    Further, EPA disagrees with commenter's conclusion that the
modeling performed for the Denver/NFR attainment demonstration with the
2010 model projections establishes that any of the areas identified
will have maintenance problems for the 1997 8-hour ozone NAAQS. We
disagree with the commenter's conclusion that the Denver/NFR area
monitors should be identified as ``maintenance receptors'' in large
part because he bases his conclusion on projections for 2010 instead of
2012. This modeling used projections for 2010 not 2012, which as
explained above and in response to Comment No. 3 below is not the
correct year for comparison, given the approach EPA has developed for
determining maintenance receptors. EPA's analysis of maintenance
receptors, which is based on the approach developed in the Transport
Rule Proposal to be consistent with the DC Circuit's opinion in North
Carolina v. EPA and uses projections for 2012, did not identify any
maintenance receptors in the Denver/NFR area. This conclusion is
consistent with evidence suggesting emissions are likely to trend
downward (for example, with two more years of fleet turnover, this
modeling would likely have projected lower levels of ozone in 2012) and
preliminary monitoring data for 2010, which indicates that the Denver/
NFR area is meeting the 1997 ozone standard. Further, EPA has reviewed
Colorado's attainment demonstration for the Denver/NFR area and
proposed that the combination of the modeling and weight of evidence
analyses demonstrates that Denver will be in attainment in
2010.26 27
---------------------------------------------------------------------------

    \26\ EPA's ``Guidance on the Use of Models and Other Analyses
for Demonstrating Attainment of Air Quality Goals for Ozone, PM2.5,
and Regional Haze,'' EPA-454/B-07-002, April 2007.
    \27\ 75 Federal Register 40 CFR part 52 [EPA-R08-OAR-2010-0285;
FRL-9177-2], Proposed Rule, ``Approval and Promulgation of Air
Quality Implementation Plans; Colorado; Attainment Demonstration for
the 1997 8-Hour Ozone Standard, and Approval of Related Revisions'';
pages 42346-42361.
---------------------------------------------------------------------------

    In addition, the commenter's concern that an area west of Fort
Collins, might exceed 84 ppb in 2010 is based on exceedance values in
the Colorado modeling analysis from a special analysis, called the
Unmonitored Area Analysis (UAA), that is recommended for model grid
cells that are not analyzed in the monitor based attainment
demonstration because they are not located near a monitor. EPA does not
believe that the UAA establishes that this area should be considered a
maintenance receptor area for the purposes of 110(a)(2)(D)(i).
    First, the UAA analysis is for 2010, which as noted above is not
the correct analysis year. Second, EPA guidance indicates that NAAQS
violations in the UAA should be handled on a case by case basis.\28\
The guidance stresses that due to the lack of measured data, the
examination of ozone concentrations as part of the unmonitored area
analysis is more uncertain than the monitor based attainment test. This
is true even in situations such as this where, as the commenter points
out, no known errors were identified by the contractor in the modeling
analysis. As a result, the UAA results are recommended to be treated as
a separate test from the monitor based attainment test with less weight
put on the conclusions of the UAA analysis. EPA's attainment
demonstration guidance indicates ``[w]hile it is expected that States
will implement additional emission controls to eliminate predicted
violations of the monitor based test, the same requirements may not be
appropriate in unmonitored areas.'' \29\ The guidance recommends that
it may be appropriate to deploy additional monitors in an area where
the unmonitored analysis indicates a potential future year violation.
---------------------------------------------------------------------------

    \28\ Id.
    \29\ Id., page 32.
---------------------------------------------------------------------------

    To address the concerns raised by the UAA, Colorado installed an
additional ozone monitor in the area West of Fort Collins to determine
whether the model predicted ozone concentrations are, in fact, valid.
The special purpose monitor, located in Rist Canyon, began operation on
May 14, 2009. The Rist Canyon monitoring station has collected data for
two ozone seasons (approximately 16 months) since it began operating
and the fourth highest daily maximum 8-hour average ozone concentration
reading is 69 ppb for May through December of

2009 and 72 ppb for January through August 2010.\30\
---------------------------------------------------------------------------

    \30\ The Rist Canyon monitoring station uses a Federal
Equivalent Method (FEM) and follows the quality assurance
requirements of 40 CFR part 58 appendix A. Ozone data collected at
this monitoring station is eligible for comparison to the ozone
NAAQS after the monitor has operated for more than 24 months per 40
CFR 58.30(c). Design values, however, are based on the 3-year
average of the annual fourth highest daily maximum 8-hour average
ozone concentration (see 40 CFR part 50, appendix D).
---------------------------------------------------------------------------

    Therefore, EPA does not believe the modeling performed for the
State of Colorado's Denver/NFR area SIP can support the conclusion that
this area should be considered a maintenance receptor area for the
purposes of 110(a)(2)(D)(i). The methodology developed to identify
maintenance receptors for the purpose of analyzing interference with
maintenance with respect to the 1997 ozone and PM 2.5 NAAQS
relies on base period monitoring data to identify monitor locations
that are projected to have maintenance problems in 2012. The
methodology does not identify receptors based on modeling data alone.
While the monitor has not operated long enough to account for
variability in ozone levels, the newly installed monitor in the
relevant area is reading well below the standard and this fact further
confirms that the modeling results and the UAA results do not support
the conclusion that receptors in the Denver/NFR area should be
considered maintenance receptors for the purpose of CAA section
110(2)(D)(i).
    In conclusion, EPA disagrees with the commenter. We have used a
fully consistent approach in identifying areas that may have difficulty
in maintaining attainment of the NAAQS. It is these areas that we have
further evaluated to see if Idaho's emissions would interfere with
maintenance of the NAAQS.
    Comment No. 3--The commenter also argued that EPA's analysis
ignores whether emissions from Idaho sources are at present interfering
with maintenance in other states. The commenter argued that EPA erred
by considering only whether Idaho emissions will interfere with
maintenance of the NAAQS in 2012 at monitors that would then be
considered ``maintenance receptors.'' It argues that this approach is
inconsistent with the approach taken to determine whether Idaho
significantly contributes to nonattainment in other states. The
commenter agreed that ``EPA should ensure that Idaho does not interfere
with maintenance or contribute significantly to nonattainment in other
states in the future,'' but argued that ``the agency's duties under
Section 110(a)(2)(D)(i) apply both in the present and the future.'' In
short, the commenter argued that EPA's approach is flawed simply
because EPA evaluated whether or not there is significant contribution
to nonattainment in other states looking at current data, whereas EPA
evaluated whether there is interference with maintenance looking at
future projected data.
    Response: EPA disagrees with the commenter concerning the
evaluation of significant contribution versus interference with
maintenance. Section 110(a)(2)(D)(I)(i) of the Clean Air Act requires
states to submit SIPs within 3 years of promulgation or revision of a
NAAQS that:

    (D) contain adequate provisions--
    (i) prohibiting * * * any source or other type of emissions
activity within the state from emitting any air pollutant in amounts
which will--
    (I) contribute significantly to nonattainment or, interfere with
maintenance by, any other State with respect to any such national
primary or secondary ambient air quality standard, or
    (II) interfere with measures required to be included in the
applicable implementation plan for any other State under part C of
this subchapter to prevent significant deterioration of air quality
or to protect visibility.

    In determining the appropriate year to analyze in determining
whether emissions from Idaho will interfere with maintenance by any
other State, EPA used an approach upheld by the DC Circuit in North
Carolina v. EPA. In that case, the court examined EPA's definition of
``will'' in ``will contribute significantly.'' The placement of the
word ``will'' at the end of section 110(a)(2)(D)(i) clarifies that it
applies to all of the provisions that follow--both those in
110(a)(2)(D)(i)(I) and those in 110(a)(2)(D)(i)(II). Thus the DC
Circuit's discussion of the meaning of the word ``will'' in ``will
significantly contribute'' also applies to the meaning of the word
``will'' in ``will * * * interfere with maintenance.''
    In North Carolina v. EPA, the DC Circuit rejected North Carolina's
argument that EPA erred in limiting its analysis of downwind areas by
excluding areas that were currently monitored nonattainment but
projected to be in attainment at a future date. Like the commenter
argues here, North Carolina had argued that EPA was obligated to
analyze the significant contribution of states that were contributing
to areas of North Carolina that were in nonattainment at the time the
rule was promulgated, even though those areas were projected to come
into attainment by the year selected for the future base case analysis.
In rejecting this argument, the DC Circuit explained that the approach
used by EPA was identical to the one used previously in the
NOX SIP Call and that ``because `will' can mean either
certainty or indicate the future tense,'' EPA's approach was
reasonable. In other words, the court approved EPA's approach that
entailed the evaluation of interstate transport impacts at a future
date in time.
    Contrary to the assertions of the commenter, EPA believes that
evaluation of interference with maintenance using a future date is the
most appropriate approach for that requirement. As explained in the
proposed action, the court decision affecting the CAIR rule required
EPA to reevaluate its approach to the interfere with maintenance
requirement of section 110(a)(2)(D) and to develop a new approach to
give that requirement separate meaning. In doing so, EPA has developed
an approach that necessarily requires a number of years of data, and an
analysis that evaluates where there may be difficulties with
maintaining attainment at a specific point in time, in this instance
2012. It is reasonable and appropriate for EPA to use, in this
rulemaking, the current approach to identifying maintenance receptors
for purposes of section 110(a)(2)(D) that EPA developed to be
consistent with the direction given to EPA in North Carolina v. EPA.
    Finally, EPA notes that the text of section 110(a)(2)(D)(i) does
not explicitly specify how to evaluate the existence of, or extent of,
interstate transport and whether that interstate transport is of
sufficient magnitude to significantly contribute to nonattainment or
interfere with maintenance as a regulatory matter. The statutory
language is ambiguous on its face and EPA must reasonably interpret
that language when it applies it to factual situations before the
Agency. EPA's 2006 Guidance explicitly stated our view that the
``precise nature and contents of such a submission [are] not stipulated
in the statute'' and that the contents of the SIP submission ``may vary
depending upon the facts and circumstances related to the specific
NAAQS.'' Moreover, within that Guidance, EPA expressed its view that
``the data and analytical tools available'' at the time of the SIP
submission ``necessarily affect * * * the content of the required
submission.'' As discussed above in response to comments regarding the
``significant contribution to nonattainment'' element, the state's
submittal and EPA's evaluation of that submittal were consistent with
the 2006

Guidance and considered the type of information (such as monitoring
data in Idaho and downwind states, geographical and meteorological
information, and technical studies of the nature and sources of
nonattainment problems in various downwind states) that EPA recommended
as relevant for evaluating that element. EPA's approach to evaluating
whether Idaho's emissions significantly contribute to nonattainment in
another state is consistent with the 2006 Guidance and is a reasonable
interpretation of section 110(a)(2)(D)(i).
    Just as EPA has used the best available information to make its
determination regarding Idaho's potential interference with maintenance
in another state, it has developed and applied a methodology to
evaluate whether Idaho's emissions potentially contribute significantly
to nonattainment of the NAAQS in another state that is based upon
consideration of information that is consistent with the 2006 Guidance,
past EPA analyses of significant contribution, and reasonably
appropriate for that purpose. As was explained in the proposed action
and in this final action's response to comments pertaining to the
``significant contribution to nonattainment'' analysis above, section
110(a)(2)(D) is ambiguous with regard to the methods and standards
applicable to a significant contribution to nonattainment
determination. Therefore, EPA must interpret those provisions, and the
Agency's interpretation is subject to judicial deference so long as it
is a reasonable construction of the statute. Chevron, U.S.A., Inc. v.
NRDC, Inc., 467 U.S. 837. EPA does not agree with the commenter's
contention that EPA's approach to the ``interference with maintenance''
and ``significant contribution to nonattainment'' prongs of section
110(a)(2)(D) are flawed. Rather, each analysis is based upon the best
available information and is a reasonable interpretation and
application of the statute's requirements.

C. Comment Relating to Section 110(l)

    Comment No. 1--The commenter argued that EPA cannot approve the
section 110(a)(2)(D) submission from Idaho because the state and EPA
did not comply with section 110(l). The commenter argues that a section
110(l) analysis must consider all NAAQS once they are promulgated, and
that EPA's analysis under section 110(l) was inadequate.
    EPA Response--EPA agrees that a required section 110(l) analysis
must consider the potential impact of a proposed SIP revision on
attainment and maintenance of all NAAQS that are in effect and impacted
by a given SIP revision. However, EPA disagrees that it failed to
comply with the requirements of section 110(l) or that section 110(l)
requires disapproval of the SIP submission at issue here.
    Section 110(l) provides in part that: ``[t]he Administrator shall
not approve a revision of a plan if the revision would interfere with
any applicable requirement concerning attainment and reasonable further
progress * * *, or any other applicable requirement of this chapter.''
EPA has consistently interpreted Section 110(l) as not requiring a new
attainment demonstration for every SIP submission. EPA has further
concluded that preservation of the status quo air quality during the
time new attainment demonstrations are being prepared will prevent
interference with the states' obligations to develop timely attainment
demonstrations. 70 FR 58134, 58199 (October 5, 2005); 70 FR 17029,
17033 (April 4, 2005); 70 FR 53, 57 (January 3, 2005); 70 FR 28429,
28431 (May 18, 2005).
    Idaho's submission is the initial submission by the state to
address for the 1997 8-hour ozone and PM2.5 NAAQS the first
three elements of section 110(a)(2)(D)(i): (1) Significant contribution
to nonattainment in any other state, (2) interference with maintenance
by any other state, and (3) interference with any other state's
required measures to prevent significant deterioration (PSD) of its air
quality. This submission does not revise or remove any existing
emissions limit for any NAAQS, or any other existing substantive SIP
provisions relevant to the 1997 8-hour ozone and 1997 PM2.5
NAAQS. Simply put, it does not make any substantive revision that could
result in any change in emissions. As a result, the submission does not
relax any existing requirements or alter the status quo air quality.
Therefore, approval of the Idaho interstate transport SIP will not
interfere with attainment or maintenance of any NAAQS.
    The commenter did not provide any specific basis for concluding
that approval of this SIP submission would interfere with attainment or
maintenance of a NAAQS, or with any other applicable requirement of the
Clean Air Act. EPA concludes that approval of the submission will not
make the status quo air quality worse, and is in fact consistent with
the development of an overall plan capable of meeting the Act's
attainment requirements. Accordingly, EPA finds that approval of the
submission is consistent with the requirements of section 110(l).

IV. Final Action

    EPA is approving revisions to the Idaho SIP, submitted on June 28,
2010, which adequately demonstrate that for the 1997 8-hour ozone and
1997 PM2.5 NAAQS, air pollutant emissions from sources
within Idaho do not (1) significantly contribute to nonattainment of
the NAAQS in any other state or (2) interfere with maintenance of the
NAAQS by any other state. EPA is also approving the provisions in the
Idaho SIP relating to interference with any other state's required
measures to prevent significant deterioration. In its September 13,
2010, proposal (75 FR 55494), EPA proposed to approve Idaho's SIP as
adequate for purposes of meeting the requirements of section
110(a)(2)(D)(i)(II) contingent upon EPA taking final action to approve
revisions to Idaho's PSD requirements that were consistent with our
proposed action on these PSD requirements on March 18, 2010. 75 FR
13058. We received no comments on this proposed contingent approval.
EPA's Region 10 Regional Administrator signed the final approval of the
PSD program revisions on November 10, 2010. These approved provisions
ensure that there will be no interference with any other state's
required PSD measures because Idaho's SIP meets current CAA
requirements for PSD.
    In conclusion, EPA is approving revisions to the Idaho SIP,
submitted on June 28, 2010, because they adequately demonstrate that
for the 1997 8-hour ozone and 1997 PM2.5 NAAQS, air
pollutant emissions from sources within Idaho do not (1) significantly
contribute to nonattainment of the NAAQS in any other state, (2)
interfere with maintenance of the NAAQS by any other state, and (3)
interfere with any other state's required measures to prevent
significant deterioration of its air quality, as required by section
110(a)(2)(D)(i).
    As noted previously, EPA will address element (4), interference
with any other state's required measures to protect visibility, in a
separate action. EPA will also take action on the portion of Idaho's
SIP that addresses the 2006 PM2.5 NAAQS in a separate
action.

V. Scope of Action

    Idaho has not demonstrated authority to implement and enforce IDAPA
Chapter 58 within ``Indian Country'' as

defined in 18 U.S.C. 1151.\31\ Therefore, EPA proposes that this SIP
approval not extend to ``Indian Country'' in Idaho. See CAA sections
110(a)(2)(A) (SIP shall include enforceable emission limits),
110(a)(2)(E)(i) (State must have adequate authority under State law to
carry out SIP), and 172(c)(6) (nonattainment SIPs shall include
enforceable emission limits). This is consistent with EPA's previous
approval of Idaho's PSD program, in which EPA specifically disapproved
the program for sources within Indian Reservations in Idaho because the
State had not shown it had authority to regulate such sources. See 40
CFR 52.683(b). It is also consistent with EPA's approval of Idaho's
title V air operating permits program. See 61 FR 64622, 64623 (December
6, 1996) (interim approval does not extend to Indian Country); 66 FR
50574, 50575 (October 4, 2001) (full approval does not extend to Indian
Country).
---------------------------------------------------------------------------

    \31\ ``Indian country'' is defined under 18 U.S.C. 1151 as: (1)
All land within the limits of any Indian reservation under the
jurisdiction of the United States Government, notwithstanding the
issuance of any patent, and including rights-of-way running through
the reservation, (2) all dependent Indian communities within the
borders of the United States, whether within the original or
subsequently acquired territory thereof, and whether within or
without the limits of a State, and (3) all Indian allotments, the
Indian titles to which have not been extinguished, including rights-
of-way running through the same. Under this definition, EPA treats
as reservations trust lands validly set aside for the use of a Tribe
even if the trust lands have not been formally designated as a
reservation. In Idaho, Indian country includes, but is not limited
to, the Coeur d'Alene Reservation, the Duck Valley Reservation, the
Reservation of the Kootenai Tribe, the Fort Hall Indian Reservation,
and the Nez Perce Reservation as described in the 1863 Nez Perce
Treaty.
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VI. Statutory and Executive Order Reviews

    Under the Clean Air Act, the Administrator is required to approve a
SIP submission that complies with the provisions of the Act and
applicable Federal regulations. 42 U.S.C. 7410(k); 40 CFR 52.02(a).
Thus, in reviewing SIP submissions, EPA's role is to approve state
choices, provided that they meet the criteria of the Clean Air Act.
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 Order
12866 (58 FR 51735, October 4, 1993);
     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 Clean Air Act; 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, this rule does not have tribal implications as specified
by Executive Order 13175 (65 FR 67249, November 9, 2000), because the
SIP is not approved to apply in Indian country located in the state,
and EPA notes that it will not impose substantial direct costs on
tribal governments or preempt tribal law.
    The Congressional Review Act, 5 U.S.C. 801 et seq., as added by the
Small Business Regulatory Enforcement Fairness Act of 1996, generally
provides that before a rule may take effect, the agency promulgating
the rule must submit a rule report, which includes a copy of the rule,
to each House of the Congress and to the Comptroller General of the
United States. EPA will submit a report containing this action and
other required information to the U.S. Senate, the U.S. House of
Representatives, and the Comptroller General of the United States prior
to publication of the rule in the Federal Register. A major rule cannot
take effect until 60 days after it is published in the Federal
Register. This action is not a ``major rule'' as defined by 5 U.S.C.
804(2).
    Under section 307(b)(1) of the Clean Air Act, petitions for
judicial review of this action must be filed in the United States Court
of Appeals for the appropriate circuit by January 25, 2011. Filing a
petition for reconsideration by the Administrator of this final rule
does not affect the finality of this action for the purposes of
judicial review nor does it extend the time within which a petition for
judicial review may be filed, and shall not postpone the effectiveness
of such rule or action. This action may not be challenged later in
proceedings to enforce its requirements. (See section 307(b)(2).)

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Carbon monoxide,
Incorporation by reference, Intergovernmental relations, Lead, Nitrogen
dioxide, Ozone, Particulate matter, Reporting and recordkeeping
requirements, Sulfur oxides, Volatile organic compounds.

    Dated: November 10, 2010.
Dennis J. McLerran,
Regional Administrator, Region 10.

0
40 CFR part 52 is amended as follows:

PART 52--[AMENDED]

0
1. The authority citation for part 52 continues to read as follows:

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

Subpart N--Idaho

0
2. The table in Sec.  52.670(e) entitled ``EPA-Approved Nonregulatory
Provisions and Quasi-Regulatory Measures'' is amended by adding an
entry to the end to read as follows:

Sec.  52.670  Identification of plan.

* * * * *
    (e) * * *

                    EPA-Approved Idaho Nonregulatory Provisions and Quasi-Regulatory Measures
----------------------------------------------------------------------------------------------------------------
                                     Applicable         State
     Name of SIP provision          geographic or     submittal       EPA  approval  date          Comments
                                 nonattainment area      date
----------------------------------------------------------------------------------------------------------------

                                                  * * * * * * *
Interstate Transport State       State-wide........   06/28/2010  11/26/2010 [Insert page     For the 1997 8-
 Implementation Plan, May 11,                                      number where the document   hour ozone NAAQS
 2010 (see comments).                                              begins]                     and the 1997
                                                                                PM[ihel2].[ihel5]
                                                                                NAAQS. See docket
                                                                                EPA-R10-OAR-2010-
                                                                                0669.
----------------------------------------------------------------------------------------------------------------

[FR Doc. 2010-29626 Filed 11-24-10; 8:45 am]
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