[Federal Register Volume 85, Number 57 (Tuesday, March 24, 2020)]
[Proposed Rules]
[Pages 16590-16599]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-05960]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R05-OAR-2019-0699; FRL-10006-84-Region 5]


Air Plan Approval; Wisconsin; Second Maintenance Plan for 1997 
Ozone NAAQS; Door County, Kewaunee County, Manitowoc County and 
Milwaukee-Racine Area

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: The Environmental Protection Agency (EPA) is proposing to 
approve a revision to the Wisconsin State Implementation Plan (SIP). On 
December 13, 2019, the Wisconsin Department of Natural Resources (WDNR) 
submitted the state's plans for maintaining the 1997 ozone National 
Ambient Air Quality Standard (NAAQS or standard) in the following 
areas: Kewaunee County, Door County, Manitowoc County, and Milwaukee-
Racine area (Kenosha, Milwaukee, Ozaukee, Racine, Washington and 
Waukesha counties). EPA is proposing to approve these maintenance plans 
because they provide for the maintenance of the 1997 ozone NAAQS 
through the end of the second 10-year maintenance period. This action, 
when finalized, would make certain commitments related to maintenance 
of the 1997 ozone NAAQS in these areas federally enforceable as part of 
the Wisconsin SIP.

DATES: Written comments must be received at the address below on or 
before April 23, 2020.

ADDRESSES: Submit your comments, identified by Docket No. EPA-R05-OAR-
2019-0699 at https://www.regulations.gov or via email to 
blakley.pamela@epa.gov. For comments submitted at Regulations.gov, 
follow the online instructions for submitting comments. Once submitted, 
comments cannot be edited or removed from Regulations.gov. EPA may 
publish any comment received to its public docket. Do not submit 
electronically any information you consider to be Confidential Business 
Information (CBI) or other information whose disclosure is restricted 
by statute. Multimedia submissions (audio, video, etc.) must be 
accompanied by a written comment. The written comment is considered the 
official comment and should include discussion of all points you wish 
to make. EPA will generally not consider comments or comment contents 
located outside of the primary submission (i.e.,

[[Page 16591]]

on the web, cloud, or other file sharing system). For additional 
submission methods, please contact Emily Crispell, (312) 353-8512, 
crispell.emily@epa.gov. For the full EPA public comment policy, 
information about CBI or multimedia submissions, and general guidance 
on making effective comments, please visit https://www.epa.gov/dockets/commenting-epa-dockets.

FOR FURTHER INFORMATION CONTACT: Emily Crispell, Environmental 
Scientist, Control Strategies Section, Air Programs Branch (AR-18J), 
Environmental Protection Agency, Region 5, 77 West Jackson Boulevard, 
Chicago, Illinois 60604, (312) 353-8512, crispell.emily@epa.gov.

SUPPLEMENTARY INFORMATION: Throughout this document, the terms ``we'', 
``us'', and ``our'' refer to EPA.

Table of Contents

I. Summary of EPA's Proposed Action
II. Background
III. EPA's Evaluation of WDNR's SIP Submittal
    A. Second Maintenance Plan
    B. Transportation Conformity
IV. Proposed Action
V. Statutory and Executive Order Reviews

I. Summary of EPA's Proposed Action

    EPA is proposing to approve, as a revision to the Wisconsin SIP, 
the 1997 ozone NAAQS maintenance plans for the Door County, Kewaunee 
County, Manitowoc County, and Milwaukee-Racine areas. The maintenance 
plans are designed to keep the Kewaunee County area in attainment of 
the 1997 ozone NAAQS through 2028, the Door County and Manitowoc County 
areas in attainment through 2030, and the Milwaukee-Racine area in 
attainment through 2032.

II. Background

    Ground-level ozone is formed when oxides of nitrogen 
(NOX) and volatile organic compounds (VOC) react in the 
presence of sunlight. These two pollutants are referred to as ozone 
precursors. Scientific evidence indicates that adverse public health 
effects occur following exposure to ozone.
    In 1979, under section 109 of the Clean Air Act (CAA), EPA 
established primary and secondary NAAQS for ozone at 0.12 parts per 
million (ppm), averaged over a 1-hour period. 44 FR 8202 (February 8, 
1979). On July 18, 1997, EPA revised the primary and secondary NAAQS 
for ozone to set the acceptable level of ozone in the ambient air at 
0.08 ppm, averaged over an 8-hour period. 62 FR 38856 (July 18, 
1997).\1\ EPA set the 8-hour ozone NAAQS based on scientific evidence 
demonstrating that ozone causes adverse health effects at lower 
concentrations and over longer periods of time than was understood when 
the pre-existing 1-hour ozone NAAQS was set.
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    \1\ In March 2008, EPA completed another review of the primary 
and secondary ozone standards and tightened them further by lowering 
the level for both to 0.075 ppm. 73 FR 16436 (March 27, 2008). 
Additionally, in October 2015, EPA completed a review of the primary 
and secondary ozone standards and tightened them by lowering the 
level for both to 0.70 ppm. 80 FR 65292 (October 26, 2015).
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    Following promulgation of a new or revised NAAQS, EPA is required 
by the CAA to designate areas throughout the nation as attaining or not 
attaining the NAAQS. On April 30, 2004 (69 FR 23857), EPA designated 
Kewaunee County, Door County, Manitowoc County, and the Milwaukee-
Racine area as nonattainment for the 1997 ozone NAAQS, and the 
designations became effective on June 15, 2004. Under the CAA, states 
are also required to adopt and submit SIPs to implement, maintain, and 
enforce the NAAQS in designated nonattainment areas and throughout the 
state.
    When a nonattainment area has three years of complete, certified 
air quality data that has been determined to attain the 1997 ozone 
NAAQS, and the area has met other required criteria described in 
section 107(d)(3)(E) of the CAA, the state can submit to EPA a request 
to be redesignated to attainment, referred to as a ``maintenance 
area''.\2\ One of the criteria for redesignation is to have an approved 
maintenance plan under CAA section 175A. The maintenance plan must 
demonstrate that the area will continue to maintain the standard for 
the period extending 10 years after redesignation, and it must contain 
such additional measures as necessary to ensure maintenance and such 
contingency provisions as necessary to assure that violations of the 
standard will be promptly corrected. At the end of the eighth year 
after the effective date of the redesignation, the state must also 
submit a second maintenance plan to ensure ongoing maintenance of the 
standard for an additional 10 years. CAA section 175A.
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    \2\ Section 107(d)(3)(E) of the CAA sets out the requirements 
for redesignation. They include attainment of the NAAQS, full 
approval under section 110(k) of the applicable SIP, determination 
that improvement in air quality is a result of permanent and 
enforceable reductions in emissions, demonstration that the state 
has met all applicable section 110 and part D requirements, and a 
fully approved maintenance plan under CAA section 175A.
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    EPA has published long-standing guidance for states on developing 
maintenance plans.\3\ The Calcagni Memorandum provides that states may 
generally demonstrate maintenance by either performing air quality 
modeling to show that the future mix of sources and emission rates will 
not cause a violation of the NAAQS or by showing that future emissions 
of a pollutant and its precursors will not exceed the level of 
emissions during a year when the area was attaining the NAAQS (i.e., 
attainment year inventory). See Calcagni Memorandum at 9.
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    \3\ ``Procedures for Processing Requests to Redesignate Areas to 
Attainment,'' Memorandum from John Calcagni, Director, Air Quality 
Management Division, September 4, 1992 (the ``Calcagni 
Memorandum'').
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    On June 12, 2007, WDNR submitted a request to EPA to redesignate 
Kewaunee County to attainment for the 1997 ozone NAAQS. This submittal 
included a plan to maintain the 1997 ozone NAAQS in Kewaunee County 
through 2018 as a revision to the Wisconsin SIP. EPA approved the 
Kewaunee County maintenance plan and the state's request to redesignate 
the area to attainment for the 1997 ozone NAAQS on May 21, 2008 (73 FR 
29436).
    On September 11, 2009, WDNR submitted a request to redesignate Door 
County and Manitowoc County to attainment for the 1997 ozone NAAQS. 
This submittal included a plan to maintain the 1997 ozone NAAQS in Door 
County and Manitowoc County through 2020 as a revision to the Wisconsin 
SIP. EPA approved the Door County and Manitowoc County maintenance 
plans and the state's request to redesignate the areas to attainment 
for the 1997 ozone NAAQS on July 12, 2010 (75 FR 39635).
    On September 11, 2009, WDNR submitted a request to redesignate the 
Milwaukee-Racine area to attainment for the 1997 ozone NAAQS.\4\ This 
submittal included a plan to maintain the 1997 ozone NAAQS in the 
Milwaukee-Racine area through 2022 as a revision to the Wisconsin SIP. 
EPA approved the Milwaukee-Racine area maintenance plan and the state's 
request to redesignate the area to attainment for the 1997 ozone NAAQS 
on July 31, 2012 (77 FR 45252).
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    \4\ WDNR supplemented the submittal on November 16, 2011.
---------------------------------------------------------------------------

    Under CAA section 175A(b), states must submit a revision to the 
first maintenance plan eight years after redesignation to provide for 
maintenance of the NAAQS for ten additional years following the end of 
the first 10-year period. EPA's final implementation rule for the 2008 
ozone NAAQS revoked the 1997 ozone NAAQS and stated that one

[[Page 16592]]

consequence of revocation was that areas that had been redesignated to 
attainment (i.e., maintenance areas) for the 1997 standard no longer 
needed to submit second 10-year maintenance plans under CAA section 
175A(b).\5\ In South Coast Air Quality Management District v. EPA 
(South Coast II), the D.C. Circuit vacated EPA's interpretation that, 
because of the revocation of the 1997 ozone standard, second 
maintenance plans were not required for ``orphan maintenance areas,'' 
i.e., areas designated attainment for the 2008 NAAQS but nonattainment 
for the 1997 NAAQS. South Coast, 882 F.3d 1138 (D.C. Cir. 2018). Thus, 
states with these ``orphan maintenance areas'' under the 1997 ozone 
NAAQS must submit maintenance plans for the second maintenance period. 
Accordingly, on December 13, 2019, WDNR submitted a second maintenance 
plan which shows attainment of the 1997 ozone NAAQS for: Kewaunee 
County through 2028; Door County and Manitowoc County through 2030; and 
the Milwaukee-Racine area through 2032, i.e., through the end of the 
full 20-year maintenance period for each of the areas.
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    \5\ See 80 FR 12315 (March 6, 2015).
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III. EPA's Evaluation of WDNR's SIP Submittal

A. Second Maintenance Plan

    Section 175A of the CAA sets forth the elements of a maintenance 
plan for areas seeking redesignation from nonattainment to attainment. 
Under section 175A, the maintenance plan must demonstrate continued 
attainment of the NAAQS for at least 10 years after the Administrator 
approves a redesignation to attainment. Eight years after the 
redesignation, the state must submit a revised maintenance plan which 
demonstrates that attainment of the NAAQS will continue for an 
additional 10 years beyond the initial 10-year maintenance period. To 
address the possibility of future NAAQS violations, the maintenance 
plan must contain contingency measures, as EPA deems necessary, to 
assure prompt correction of the future NAAQS violation.
    The Calcagni Memorandum provides further guidance on the content of 
a maintenance plan, explaining that a maintenance plan should address 
five elements: (1) An attainment emission inventory; (2) a maintenance 
demonstration; (3) a commitment for continued air quality monitoring; 
(4) a process for verification of continued attainment; and (5) a 
contingency plan.
    On December 13, 2019, WDNR submitted, as a SIP revision, plans to 
provide for maintenance of the 1997 ozone standard in: The Kewaunee 
County area through 2028, the Door County and Manitowoc County areas 
through 2030, and the Milwaukee-Racine area through 2032, each 
respectively more than 20 years after the effective date of the 
redesignation to attainment. As discussed below, EPA proposes to find 
that WDNR's second maintenance plans include the necessary components 
and to approve the maintenance plans as revisions to the Wisconsin SIP.
1. Attainment Inventory
a. Kewaunee County
    The CAA section 175A maintenance plan approved by EPA for the first 
10-year period included an attainment inventory for the Kewaunee County 
area that reflects typical summer day VOC and NOX emissions 
in 2005. This inventory is summarized in Table 1 below.

  Table 1--Kewaunee County Typical Summer Day VOC and NOX Emissions for
                  Attainment Year 2005 in Tons per Day
                                  [tpd]
------------------------------------------------------------------------
             Source category                    VOC             NOX
------------------------------------------------------------------------
Nonroad.................................             1.6             1.7
Onroad..................................             0.6             1.2
Point...................................             0.2            0.01
Area....................................             1.3             0.1
                                         -------------------------------
    Total...............................             3.7             3.0
------------------------------------------------------------------------

    In addition, because the Kewaunee County area continued to monitor 
attainment of the 1997 ozone NAAQS in 2014, this is also an appropriate 
year to use for an attainment year inventory. WDNR is using 2014 summer 
day emissions from the EPA 2014 version 7.0 modeling platform as the 
basis for the attainment inventory presented in Table 2 below.\6\ These 
data are based on the most recently available National Emissions 
Inventory (2014 NEI version 2).
---------------------------------------------------------------------------

    \6\ The inventory documentation for this platform can be found 
here: https://www.epa.gov/air-emissions-modeling/2014-version-70-platform.

  Table 2--Kewaunee County Typical Summer Day VOC and NOX Emissions for
                          Attainment Year 2014
                                  [tpd]
------------------------------------------------------------------------
             Source category                    VOC             NOX
------------------------------------------------------------------------
Nonroad.................................            1.01            0.91
Onroad..................................            0.48            0.91
Point...................................            0.16            0.14
Area....................................            0.90            0.65
                                         -------------------------------
    Total...............................            2.54            2.61
------------------------------------------------------------------------


[[Page 16593]]

b. Door County and Manitowoc County
    The CAA section 175A maintenance plan approved by EPA for the first 
10-year period included an attainment inventory for the Door County and 
Manitowoc County areas that reflects typical summer day VOC and 
NOX emissions in 2007. This inventory is summarized in Table 
3 below.

 Table 3--Door County and Manitowoc County Typical Summer Day VOC and NOX Emissions for Attainment Year 2007 in
                                                  Tons per Day
                                                      [tpd]
----------------------------------------------------------------------------------------------------------------
                                                            Door county                  Manitowoc county
                 Source category                 ---------------------------------------------------------------
                                                        VOC             NOX             VOC             NOX
----------------------------------------------------------------------------------------------------------------
Nonroad.........................................            8.85            5.28            3.15            3.61
Onroad..........................................            0.93            1.97            2.24            5.38
Point...........................................            0.30           0.002            1.43            3.13
Area............................................            1.51            0.20            4.39            0.43
                                                 ---------------------------------------------------------------
    Total.......................................           11.59           7.452           11.21           12.55
----------------------------------------------------------------------------------------------------------------

    In addition, because the Door County and Manitowoc County areas 
continued to monitor attainment of the 1997 ozone NAAQS in 2014, this 
is also an appropriate year to use for an attainment year inventory. 
WDNR is using 2014 summer day emissions from the EPA 2014 version 7.0 
modeling platform as the basis for the attainment inventory presented 
in Table 4 below.\7\ These data are based on the most recently 
available National Emissions Inventory (2014 NEI version 2).
---------------------------------------------------------------------------

    \7\ The inventory documentation for this platform can be found 
here: https://www.epa.gov/air-emissions-modeling/2014-version-70-platform.

   Table 4--Door County and Manitowoc County Typical Summer Day VOC and NOX Emissions for Attainment Year 2014
                                                      [tpd]
----------------------------------------------------------------------------------------------------------------
                                                            Door county                  Manitowoc county
                 Source category                 ---------------------------------------------------------------
                                                        VOC             NOX             VOC             NOX
----------------------------------------------------------------------------------------------------------------
Nonroad.........................................            5.82            3.53            1.91            2.00
Onroad..........................................            0.91            1.70            1.78            3.83
Point...........................................            0.22            0.02            1.27            2.23
Area............................................            1.17            1.97            3.23            1.74
                                                 ---------------------------------------------------------------
    Total.......................................            8.12            7.23             8.2            9.80
----------------------------------------------------------------------------------------------------------------

c. Milwaukee-Racine Area
    The CAA section 175A maintenance plan approved by EPA for the first 
10-year period included an attainment inventory for the Milwaukee-
Racine area that reflects typical summer day VOC and NOX 
emissions in 2008. This inventory is summarized in Tables 5 and 6 
below.

 Table 5--Milwaukee-Racine Area Typical Summer Day VOC and NOX Emissions
                for Attainment Year 2008 in Tons per Day
                                  [tpd]
------------------------------------------------------------------------
                                               Milwaukee-Racine area
             Source category             -------------------------------
                                                VOC             NOX
------------------------------------------------------------------------
Nonroad.................................           50.02           45.34
Onroad..................................           36.35           92.74
Point...................................           12.17           39.16
Area....................................           57.22           14.76
                                         -------------------------------
    Total...............................          155.76          192.00
------------------------------------------------------------------------


[[Page 16594]]


                                           Table 6--Milwaukee-Racine Area Typical Summer Day VOC and NOX Emissions by County for Attainment Year 2008
                                                                                              [tpd]
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                 Kenosha county       Milwaukee county       Ozaukee county         Racine county       Washington county      Waukesha county
                       Source category                       -----------------------------------------------------------------------------------------------------------------------------------
                                                                 VOC        NOX        VOC        NOX        VOC        NOX        VOC        NOX        VOC        NOX        VOC        NOX
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.....................................................       4.57       3.94      12.90      15.83       2.17       4.66       6.23       4.99       5.39       4.10      18.76      11.82
Onroad......................................................       3.05       7.52      16.05      41.68       2.13       5.47       3.51       8.79       2.97       7.62       8.64      21.66
Point.......................................................       1.33       8.56       5.52      26.91       0.42       0.73       1.41       1.13       0.49       0.26       3.00       1.57
Area........................................................       3.39       0.76      21.19       6.85       3.99       0.89       6.17       1.27       9.97       1.23      12.51       3.76
                                                             -----------------------------------------------------------------------------------------------------------------------------------
    Total...................................................      12.34      20.78      55.66      91.27       8.71      11.75      17.32      16.18      18.82      13.21      42.91      38.81
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------

    In addition, because the Milwaukee-Racine area continued to monitor 
attainment of the 1997 ozone NAAQS in 2014, this is also an appropriate 
year to use for an attainment year inventory. WDNR is using 2014 summer 
day emissions from the EPA 2014 version 7.0 modeling platform as the 
basis for the attainment inventory presented in Tables 7 and 8 
below.\8\ These data are based on the most recently available National 
Emissions Inventory (2014 NEI version 2).
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    \8\ The inventory documentation for this platform can be found 
here: https://www.epa.gov/air-emissions-modeling/2014-version-70-platform.

 Table 7--Milwaukee-Racine Area Typical Summer Day VOC and NOX Emissions
                        for Attainment Year 2014
                                  [tpd]
------------------------------------------------------------------------
                                               Milwaukee-Racine area
             Source category             -------------------------------
                                                VOC             NOX
------------------------------------------------------------------------
Nonroad.................................           26.87           24.36
Onroad..................................           26.60           55.87
Point...................................           10.33           28.90
Area....................................           53.28           20.97
                                         -------------------------------
    Total...............................          117.08          130.09
------------------------------------------------------------------------


                                           Table 8--Milwaukee-Racine Area Typical Summer Day VOC and NOX Emissions by County for Attainment Year 2014
                                                                                              [tpd]
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                 Kenosha county       Milwaukee county       Ozaukee county         Racine county       Washington county      Waukesha county
                       Source category                       -----------------------------------------------------------------------------------------------------------------------------------
                                                                 VOC        NOX        VOC        NOX        VOC        NOX        VOC        NOX        VOC        NOX        VOC        NOX
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.....................................................       2.48       2.06       6.72       7.55       1.23       2.94       3.34       2.69       2.96       2.13      10.14       7.00
Onroad......................................................       2.33       4.80      11.40      23.70       1.55       3.36       2.57       5.44       2.37       5.49       6.39      13.09
Point.......................................................       0.53       7.89       5.10      17.66       0.34       0.89       1.20       0.77       0.77       0.39       2.39       1.30
Area........................................................       4.29       2.15      24.08       8.30       2.28       1.34       5.71       2.75       4.26       1.72      12.66       4.72
                                                             -----------------------------------------------------------------------------------------------------------------------------------
    Total...................................................       9.63      16.89      47.30      57.20       5.40       8.53      12.81      11.65      10.37       9.72      31.57      26.10
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------

2. Maintenance Demonstration
a. Kewaunee County
    WDNR is demonstrating maintenance through 2028 for the Kewaunee 
County area by showing that future emissions of VOC and NOX 
remain at or below attainment year emission levels. 2028 is an 
appropriate maintenance year for Kewaunee County because it is more 
than 10 years beyond the first 10-year maintenance period. The 2028 
emissions inventory is projected from the EPA 2011 version 6.3 modeling 
platform.\9\ The relevant inventory scenario names are ``2014fd'' and 
``2028el.'' The 2028 scenario was used in past air quality modeling for 
the regional haze program. The 2028 summer day emissions inventory for 
Kewaunee County is summarized in Table 9 below. Table 10 documents 
changes in NOX and VOC emissions in Kewaunee County between 
2005, 2014 and 2028.
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    \9\ The inventory documentation for this platform can be found 
here: https://www.epa.gov/air-emissions-modeling/2011-version-63-platform.

  Table 9--Kewaunee County Typical Summer Day VOC and NOX Emissions for
                          Maintenance Year 2028
                                  [tpd]
------------------------------------------------------------------------
             Source category                    VOC             NOX
------------------------------------------------------------------------
Nonroad.................................            0.47            0.49
Onroad..................................            0.14            0.19
Point...................................            0.18            0.11

[[Page 16595]]

 
Area....................................            1.00            0.10
                                         -------------------------------
    Total...............................            1.78            0.89
------------------------------------------------------------------------


                      Table 10--Change in Typical Summer Day VOC and NOX Emissions in Kewaunee County Between 2005, 2014, and 2028
                                                                          [tpd]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                            VOC                                                          NOX
                               -------------------------------------------------------------------------------------------------------------------------
        Source category                                           Net change    Net change                                     Net change    Net change
                                   2005       2014       2028     (2005-2028)   (2014-2028)     2005       2014       2028     (2005-2028)   (2014-2028)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.......................        1.6       1.01       0.47         -1.13         -0.54        1.7       0.91       0.49         -1.21         -0.42
Onroad........................        0.6       0.48       0.14         -0.46         -0.34        1.2       0.91       0.19         -1.01         -0.72
Point.........................        0.2       0.16       0.18         -0.02          0.02       0.01       0.14       0.11           0.1         -0.03
Area..........................        1.3       0.90       1.00          -0.3           0.1        0.1       0.65       0.10             0         -0.55
                               -------------------------------------------------------------------------------------------------------------------------
    Total.....................        3.7       2.54       1.78         -1.92         -0.76        3.0       2.61       0.89         -2.11         -1.72
--------------------------------------------------------------------------------------------------------------------------------------------------------

    In summary, the maintenance demonstration for the Kewaunee County 
area shows maintenance of the 1997 ozone standard by providing 
emissions information to support the demonstration that future 
emissions of NOX and VOC will remain at or below 2014 
emission levels when taking into account both future source growth and 
implementation of future controls. Table 10 shows that VOC and 
NOX emissions in Kewaunee County are projected to decrease 
by 0.76 tpd and 1.72 tpd, respectively, between 2014 and 2028.
b. Door and Manitowoc
    WDNR is demonstrating maintenance through 2030 for the Door County 
and Manitowoc County areas by showing that future emissions of VOC and 
NOX remain at or below attainment year emission levels. 2030 
is an appropriate maintenance year for the Door County and Manitowoc 
County areas because it is more than 10 years beyond the first 10-year 
maintenance period. The 2030 emissions inventory is projected from the 
EPA 2011 version 6.3 modeling platform.\10\ The relevant inventory 
scenario names are ``2014fd'' and ``2028el.'' The 2028 scenario was 
used in past air quality modeling for the regional haze program. WDNR 
projected emissions from 2028 to 2030 for the Door County and Manitowoc 
County areas based on EPA's 2028 emission inventory projections from 
EPA's 6.3 modeling platform. WDNR projected that emissions for 2030 
would remain at 2028 levels for the Door County and Manitowoc County 
areas. WDNR's approach is conservative as emissions are expected to 
further decrease from 2028 to 2030 due to decreases in mobile source 
emissions through continued implementation of vehicle emissions 
standard and vehicle fleet turn over. The 2030 summer day emissions 
inventory for the Door County and Manitowoc County areas are summarized 
in Table 11 below. Tables 12 and 13 document changes in NOX 
and VOC emissions in Door County and Manitowoc County between 2007, 
2014 and 2030.
---------------------------------------------------------------------------

    \10\ The inventory documentation for this platform can be found 
here: https://www.epa.gov/air-emissions-modeling/2011-version-63-platform.

  Table 11--Door County and Manitowoc County Typical Summer Day VOC and NOX Emissions for Maintenance Year 2030
                                                      [tpd]
----------------------------------------------------------------------------------------------------------------
                                                            Door county                  Manitowoc county
                 Source category                 ---------------------------------------------------------------
                                                        VOC             NOX             VOC             NOX
----------------------------------------------------------------------------------------------------------------
Nonroad.........................................            2.70            2.45            1.05            1.10
Onroad..........................................            0.28            0.39            0.65            1.39
Point...........................................            0.13            0.01            1.46            2.34
Area............................................            1.39            0.25            3.89            0.54
                                                 ---------------------------------------------------------------
    Total.......................................            4.50            3.09            7.04            5.36
----------------------------------------------------------------------------------------------------------------


[[Page 16596]]


                        Table 12--Change in Typical Summer Day VOC and NOX Emissions in Door County Between 2007, 2014, and 2030
                                                                          [tpd]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                       Door county
                               -------------------------------------------------------------------------------------------------------------------------
                                                            VOC                                                          NOX
        Source category        -------------------------------------------------------------------------------------------------------------------------
                                                                  Net change    Net change                                     Net change    Net change
                                   2007       2014       2030     (2007-2030)   (2014-2030)     2007       2014       2030     (2007-2030)   (2014-2030)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.......................       8.85       5.82        2.7         -6.15         -3.12       5.28       3.53       2.45         -2.83         -1.08
Onroad........................       0.93       0.91       0.28         -0.65         -0.63       1.97        1.7       0.39         -1.58         -1.31
Point.........................        0.3       0.22       0.13         -0.17         -0.09      0.002       0.02       0.01         0.008         -0.01
Area..........................       1.51       1.17       1.39         -0.12          0.22        0.2       1.97       0.25          0.05         -1.72
                               -------------------------------------------------------------------------------------------------------------------------
    Total.....................      11.59       8.12        4.5         -7.09         -3.62      7.452       7.23       3.09        -4.362         -4.14
--------------------------------------------------------------------------------------------------------------------------------------------------------


                      Table 13--Change in Typical Summer Day VOC and NOX Emissions in Manitowoc County Between 2007, 2014, and 2030
                                                                          [tpd]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                    Manitowoc county
                               -------------------------------------------------------------------------------------------------------------------------
                                                            VOC                                                          NOX
        Source category        -------------------------------------------------------------------------------------------------------------------------
                                                                  Net change    Net change                                     Net change    Net change
                                   2007       2014       2030     (2007-2030)   (2014-2030)     2007       2014       2030     (2007-2030)   (2014-2030)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.......................       3.15       1.91       1.05          -2.1         -0.86       3.61          2        1.1         -2.51          -0.9
Onroad........................       2.24       1.78       0.65         -1.59         -1.13       5.38       3.83       1.39         -3.99         -2.44
Point.........................       1.43       1.27       1.46          0.03          0.19       3.13       2.23       2.34         -0.79          0.11
Area..........................       4.39       3.23       3.89          -0.5          0.66       0.43       1.74       0.54          0.11          -1.2
                               -------------------------------------------------------------------------------------------------------------------------
    Total.....................      11.21        8.2       7.04         -4.17         -1.16      12.55        9.8       5.36         -7.19         -4.44
--------------------------------------------------------------------------------------------------------------------------------------------------------

    In summary, the maintenance demonstration for the Door County and 
Manitowoc County areas shows maintenance of the 1997 ozone standard by 
providing emissions information to support the demonstration that 
future emissions of NOX and VOC will remain at or below 2014 
emission levels when taking into account both future source growth and 
implementation of future controls. Table 12 shows VOC and 
NOX emissions in Door County are projected to decrease by 
3.62 tpd and 4.14 tpd, respectively, between 2014 and 2030. Table 13 
shows VOC and NOX emissions in Manitowoc County are 
projected to decrease by 1.16 tpd and 4.44 tpd, respectively, between 
2014 and 2030.
c. Milwaukee-Racine Area
    WDNR is demonstrating maintenance through 2032 for the Milwaukee-
Racine area by showing that future emissions of VOC and NOX 
remain at or below attainment year emission levels. 2032 is an 
appropriate maintenance year for the Milwaukee-Racine area because it 
is more than 10 years beyond the first 10-year maintenance period. The 
2028 emissions inventory is projected from the EPA 2011 version 6.3 
modeling platform.\11\ The relevant inventory scenario names are 
``2014fd'' and ``2028el.'' The 2028 scenario was used in past air 
quality modeling for the regional haze program. WDNR projected 
emissions from 2028 to 2032 for Milwaukee-Racine area based on EPA's 
2028 emission inventory projections from EPA's 6.3 modeling platform. 
WDNR projected that emissions for 2032 would remain at 2028 levels for 
Milwaukee-Racine area. WDNR's approach is conservative as emissions are 
expected to further decrease from 2028 to 2032 due to decreases in 
mobile source emissions through continued implementation of vehicle 
emissions standard and vehicle fleet turn over. The 2032 summer day 
emissions inventory for the Milwaukee-Racine area is summarized in 
Tables 14 and 15 below. Table 16 documents changes in NOX 
and VOC emissions in the Milwaukee-Racine area between 2008, 2014 and 
2032.
---------------------------------------------------------------------------

    \11\ The inventory documentation for this platform can be found 
here: https://www.epa.gov/air-emissions-modeling/2011-version-63-platform.

Table 14--Milwaukee-Racine Area Typical Summer Day VOC and NOX Emissions
                        for Maintenance Year 2032
                                  [tpd]
------------------------------------------------------------------------
                                               Milwaukee-Racine area
             Source category             -------------------------------
                                                VOC             NOX
------------------------------------------------------------------------
Nonroad.................................           18.44           13.93
Onroad..................................            9.98           19.52
Point...................................            9.69           17.80
Area....................................           52.70           15.16
                                         -------------------------------
    Total...............................           90.81           66.41
------------------------------------------------------------------------


[[Page 16597]]


                                          Table 15--Milwaukee-Racine Area Typical Summer Day VOC and NOX Emissions by County for Maintenance Year 2032
                                                                                              [tpd]
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                 Kenosha county       Milwaukee county       Ozaukee county         Racine county       Washington county      Waukesha county
                       Source category                       -----------------------------------------------------------------------------------------------------------------------------------
                                                                 VOC        NOX        VOC        NOX        VOC        NOX        VOC        NOX        VOC        NOX        VOC        NOX
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.....................................................       1.38       1.19       5.93       4.35       1.05       1.35       1.82       1.56       1.95       1.20       6.32       4.28
Onroad......................................................       0.86       1.62       3.94       7.90       0.60       1.23       0.94       1.84       1.02       2.07       2.62       4.85
Point.......................................................       0.57       7.41       4.29       7.66       0.43       0.97       1.15       0.48       0.53       0.14       2.71       1.13
Area........................................................       4.80       1.25      23.24       6.79       2.44       0.72       6.61       1.46       4.84       1.26      10.76       3.68
                                                             -----------------------------------------------------------------------------------------------------------------------------------
    Total...................................................       7.62      11.48      37.40      26.70       4.51       4.27      10.52       5.36       8.34       4.66      22.42      13.94
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------


                   Table 16--Change in Typical Summer Day VOC and NOX Emissions in Milwaukee-Racine Area Between 2008, 2014, and 2032
                                                                          [tpd]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                  Milwaukee-Racine area
                               -------------------------------------------------------------------------------------------------------------------------
                                                            VOC                                                          NOX
        Source category        -------------------------------------------------------------------------------------------------------------------------
                                                                  Net change    Net change                                     Net change    Net change
                                   2008       2014       2032     (2008-2032)   (2014-2032)     2008       2014       2032     (2008-2032)   (2014-2032)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.......................      50.02      26.87      18.44        -31.58         -8.43      45.34      24.36      13.93        -31.41        -10.43
Onroad........................      36.35       26.6       9.98        -26.37        -16.62      92.74      55.87      19.52        -73.22        -36.35
Point.........................      12.17      10.33       9.69         -2.48         -0.64      39.16       28.9       17.8        -21.36         -11.1
Area..........................      57.22      53.28       52.7         -4.52         -0.58      14.76      20.97      15.16           0.4         -5.81
                               -------------------------------------------------------------------------------------------------------------------------
    Total.....................     155.76     117.08      90.81        -64.95        -26.27        192     130.09      66.41       -125.59        -63.68
--------------------------------------------------------------------------------------------------------------------------------------------------------

    In summary, the maintenance demonstration for the Milwaukee-Racine 
area shows maintenance of the 1997 ozone standard by providing 
emissions information to support the demonstration that future 
emissions of NOX and VOC will remain at or below 2014 
emission levels when taking into account both future source growth and 
implementation of future controls. Table 16 shows that VOC and 
NOX emissions in Milwaukee-Racine area are projected to 
decrease by 26.27 tpd and 63.68 tpd, respectively, between 2014 and 
2032.
3. Continued Air Quality Monitoring
    WDNR commits to continue to operate an approved ozone monitoring 
network in Kewaunee County, Door County, Manitowoc County and the 
Milwaukee-Racine area. WDNR commits to consult with EPA prior to making 
changes to the existing monitoring network should changes become 
necessary in the future. WDNR remains obligated to meet monitoring 
requirements and continue to quality assure monitoring data in 
accordance with 40 CFR part 58, and to enter all data into the Air 
Quality System (AQS) in accordance with Federal guidelines.
4. Verification of Continued Attainment
    WDNR has the legal authority to enforce and implement the 
requirements of the maintenance plans for Kewaunee County, Door County, 
Manitowoc County and the Milwaukee-Racine area. This includes the 
authority to adopt, implement, and enforce any subsequent emission 
control measures determined to be necessary to correct future ozone 
attainment problems.
    Verification of continued attainment is accomplished through 
operation of the ambient ozone monitoring network and the periodic 
update of the area's emissions inventory. WDNR will continue to operate 
an approved ozone monitoring network in Kewaunee County, Door County, 
Manitowoc County and the Milwaukee-Racine area. There are no plans to 
discontinue operation, relocate, or otherwise change the existing ozone 
monitoring network other than through revisions to the Wisconsin 
Monitoring Network Plan approved by EPA.
    In addition, to track future levels of emissions, WDNR will 
continue to develop and submit to EPA updated emission inventories for 
all source categories at least once every three years, consistent with 
the requirements of 40 CFR part 51, subpart A, and in 40 CFR 51.122. 
The Consolidated Emissions Reporting Rule (CERR) was promulgated by EPA 
on June 10, 2002 (67 FR 39602). The CERR was replaced by the Annual 
Emissions Reporting Requirements (AERR) on December 17, 2008 (73 FR 
76539).
5. Contingency Plan
    Section 175A of the CAA requires that the state must adopt a 
maintenance plan, as a SIP revision, that includes such contingency 
measures as EPA deems necessary to assure that the state will promptly 
correct a violation of the NAAQS that occurs after redesignation of the 
area to attainment of the NAAQS. The maintenance plan must identify: 
The contingency measures to be considered and, if needed for 
maintenance, adopted and implemented; a schedule and procedure for 
adoption and implementation; and, a time limit for action by the state. 
The state should also identify specific indicators to be used to 
determine when the contingency measures need to be considered, adopted, 
and implemented. The maintenance plan must include a commitment that 
the state will implement all measures with respect to the control of 
the pollutant that were contained in the SIP before redesignation of 
the area to attainment in accordance with section 175A(d) of the CAA.
    As required by section 175A of the CAA, WDNR has adopted 
contingency plans for Kewaunee County, Door County, Manitowoc County 
and the Milwaukee-Racine area to address possible future ozone air 
quality problems. The contingency plans adopted by WDNR have two levels 
of response: A warning level response and an action level response.
    In WDNR's plans, a warning level response will be triggered when an 
annual fourth high monitored value higher than the NAAQS is monitored 
within the maintenance area. A warning level response will consist of 
WDNR

[[Page 16598]]

conducting a study to determine whether the ozone value indicates a 
trend toward higher ozone values and whether emissions are 
significantly higher than projected in the maintenance plan. The study 
will evaluate whether the actual emissions have deviated significantly 
from the emissions projections contained in the maintenance plan for 
the nonattainment areas, along with an evaluation of which sectors and 
states are responsible for any emissions increases. The study will also 
assess whether unusual meteorological conditions during the high-ozone 
year led to the high monitored ozone concentrations. The study will 
evaluate whether the trend, if any, is likely to continue and, if so, 
the control measures necessary to reverse the trend. The study will 
consider ease and timing of implementation as well as economic and 
social impacts. The study findings will be completed no later than the 
beginning of the following summer ozone control period (May 1). 
Implementation of necessary controls in response to a warning level 
response trigger will follow the procedures for control selection and 
implementation outlined under the action level response.
    In WDNR's plans, an action level response is triggered when a 
three-year design value exceeding the level of the 1997 ozone NAAQS is 
monitored within the maintenance area. In the event that the action 
level is triggered and is not found to be due to an exceptional event, 
malfunction, or noncompliance with a permit condition or rule 
requirement, WDNR, in conjunction with the metropolitan planning 
organization or regional council of governments, will determine what 
additional control measures are needed to ensure future attainment of 
the ozone standard. Control measures selected will be adopted and 
implemented within 18 months of the certification of the monitoring 
data that triggered the action level response. WDNR may also consider 
if significant new regulations not currently included as part of the 
maintenance provisions will be implemented in a timely manner and would 
thus constitute an adequate contingency measure response.
    WDNR included the following list of potential contingency measures 
in its maintenance plans:
    1. Implementation of any federally promulgated rule regulating 
transport of ozone precursors;
    2. Updated Federal NOX emission limits for heavy-duty 
vehicles;
    3. Updated (Phase 2) Federal fuel efficiency standards for medium 
and heavy-duty engines and vehicles;
    4. New Federal regulations on the sale of aftermarket catalysts for 
vehicle catalytic converters;
    5. Anti-idling control program for mobile sources, targeting diesel 
vehicles;
    6. Diesel exhaust retrofits;
    7. Traffic flow improvements;
    8. Park and ride facilities;
    9. Rideshare/carpool program;
    10. Expansion of the vehicle emissions testing program.
    EPA has concluded that the maintenance plans adequately addresses 
the five basic components of a maintenance plan required under Section 
175A of the CAA: Attainment inventory, maintenance demonstration, 
monitoring network, verification of continued attainment, and a 
contingency plan. Thus, EPA proposes to find that the maintenance plans 
SIP revision submitted by WDNR for Kewaunee County, Door County, 
Manitowoc County and the Milwaukee-Racine area meet the requirements of 
section 175A of the CAA.

B. Transportation Conformity

    Transportation conformity is required by section 176(c) of the CAA. 
Conformity to a SIP means that transportation activities will not 
produce new air quality violations, worsen existing violations, or 
delay timely attainment of the NAAQS (CAA 176(c)(1)(B)). EPA's 
conformity rule at 40 CFR part 93 requires that transportation plans, 
programs and projects conform to SIPs and establish the criteria and 
procedures for determining whether they conform. The conformity rule 
generally requires a demonstration that emissions from the Regional 
Transportation Plan and the Transportation Improvement Program (TIP) 
are consistent with the motor vehicle emissions budget (MVEB) contained 
in the control strategy SIP revision or maintenance plan (40 CFR 
93.101, 93.118, and 93.124). A MVEB is defined as ``that portion of the 
total allowable emissions defined in the submitted or approved control 
strategy implementation plan revision or maintenance plan for a certain 
date for the purpose of meeting reasonable further progress milestones 
or demonstrating attainment or maintenance of the NAAQS, for any 
criteria pollutant or its precursors, allocated to highway and transit 
vehicle use and emissions (40 CFR 93.101).''
    EPA's current transportation conformity regulation requires a 
regional emissions analysis only during the time period beginning one 
year after a nonattainment designation for a particular NAAQS until the 
effective date of revocation of that NAAQS (40 CFR 93.109(c)). 
Therefore, pursuant to the conformity regulation, a regional emissions 
analysis using MVEBs is not required for conformity determinations for 
the 1997 ozone NAAQS because that NAAQS has been revoked (80 FR 12264). 
As no regional emissions analysis is required for Kewaunee County, Door 
County, Manitowoc County or the Milwaukee-Racine area, transportation 
conformity for the 1997 ozone NAAQS can be demonstrated by a 
Metropolitan Planning Organization and Department of Transportation for 
transportation plans and TIPs by showing that the remaining criteria 
contained in Table 1 in 40 CFR 93.109, and 40 CFR 93.108 have been met.

IV. Proposed Action

    Under sections 110(k) and 175A of the CAA and for the reasons set 
forth above, EPA is proposing to approve the Kewaunee County, Door 
County and Manitowoc County, and the Milwaukee-Racine area second 
maintenance plans for the 1997 Ozone NAAQS, submitted by WDNR on 
December 13, 2019, as a revision to the Wisconsin SIP. These second 
maintenance plans are designed to keep the Kewaunee County area in 
attainment of the 1997 ozone NAAQS through 2028, Door County and 
Manitowoc County in attainment of the 1997 ozone NAAQS though 2030, and 
the Milwaukee-Racine area in attainment of the 1997 ozone NAAQS through 
2032.

V. Statutory and Executive Order Reviews

    Under the CAA, the Administrator is required to approve a SIP 
submission that complies with the provisions of the CAA and applicable 
Federal regulations. 42 U.S.C. 7410(k); 40 CFR 52.02(a). Thus, in 
reviewing SIP submissions, EPA's role is to approve state choices, 
provided that they meet the criteria of the CAA. Accordingly, this 
proposed action merely proposes to approve state law as meeting Federal 
requirements and does not impose additional requirements beyond those 
imposed by state law. For that reason, this proposed action:
     Is not a significant regulatory action subject to review 
by the Office of Management and Budget under Executive Orders 12866 (58 
FR 51735, October 4, 1993) and 13563 (76 FR 3821, January 21, 2011);
     Is not an Executive Order 13771 (82 FR 9339, February 2, 
2017) regulatory action because SIP approvals are exempted under 
Executive Order 12866;
     Does not impose an information collection burden under the 
provisions

[[Page 16599]]

of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);
     Is certified as not having a significant economic impact 
on a substantial number of small entities under the Regulatory 
Flexibility Act (5 U.S.C. 601 et seq.);
     Does not contain any unfunded mandate or significantly or 
uniquely affect small governments, as described in the Unfunded 
Mandates Reform Act of 1995 (Pub. L. 104-4);
     Does not have Federalism implications as specified in 
Executive Order 13132 (64 FR 43255, August 10, 1999);
     Is not an economically significant regulatory action based 
on health or safety risks subject to Executive Order 13045 (62 FR 
19885, April 23, 1997);
     Is not a significant regulatory action subject to 
Executive Order 13211 (66 FR 28355, May 22, 2001);
     Is not subject to requirements of Section 12(d) of the 
National Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272 
note) because application of those requirements would be inconsistent 
with the CAA; and
     Does not provide EPA with the discretionary authority to 
address disproportionate human health or environmental effects with 
practical, appropriate, and legally permissible methods under Executive 
Order 12898 (59 FR 7629, February 16, 1994).
    In addition, the SIP is not approved to apply on any Indian 
reservation land or in any other area where EPA or an Indian tribe has 
demonstrated that a tribe has jurisdiction. In those areas of Indian 
country, the rule does not have tribal implications and will not impose 
substantial direct costs on tribal governments or preempt tribal law as 
specified by Executive Order 13175 (65 FR 67249, November 9, 2000).

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Incorporation by 
reference, Intergovernmental relations, Nitrogen oxides, Ozone, 
Reporting and recordkeeping requirements, Volatile organic compounds.

    Dated: March 10, 2020.
Cheryl Newton,
Deputy Regional Administrator, Region 5.
[FR Doc. 2020-05960 Filed 3-23-20; 8:45 am]
BILLING CODE 6560-50-P


