Proposed Rule2025-14470
Air Plan Approval; New Jersey; Northern New Jersey and Southern New Jersey Counties' Second 10-Year Limited Maintenance Plan for the 2006 24-Hour PM2.5 Standard
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Published
July 31, 2025
Issuing agencies
Environmental Protection Agency
Abstract
The Environmental Protection Agency (EPA) is proposing to approve, under the Clean Air Act (CAA), the limited maintenance plan (LMP) for the 2006 PM<INF>2.5</INF> national ambient air quality standard (NAAQS) for the New Jersey portion of both of New Jersey's multi-state maintenance areas: the Northern New Jersey portion of the New York-Northern New Jersey-Long Island, NY-NJ-CT (Northern New Jersey) maintenance area and the New Jersey portion of the Philadelphia-Wilmington, PA-NJ-DE (Southern New Jersey) maintenance area. This LMP was submitted on July 6, 2023, and supplemented on June 6, 2024, by the New Jersey Department of Environmental Protection (NJDEP). The plan addresses the second 10-year maintenance period for particulate matter with an aerodynamic diameter less than or equal to a nominal 2.5 micrometers, known as PM<INF>2.5</INF>. The EPA is proposing approval of New Jersey's LMP submission because it provides for the maintenance of the 2006 24-hour PM<INF>2.5</INF> NAAQS through the end of the second 10-year portion of the maintenance period. In addition, the EPA completed the adequacy review process of this New Jersey PM<INF>2.5</INF> LMP for transportation conformity purposes on June 7, 2024.
Full Text
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<title>Federal Register, Volume 90 Issue 145 (Thursday, July 31, 2025)</title>
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[Federal Register Volume 90, Number 145 (Thursday, July 31, 2025)]
[Proposed Rules]
[Pages 35996-36003]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2025-14470]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[EPA-R02-OAR-2024-0288; FRL-12047-01-R2]
Air Plan Approval; New Jersey; Northern New Jersey and Southern
New Jersey Counties' Second 10-Year Limited Maintenance Plan for the
2006 24-Hour PM2.5 Standard
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
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SUMMARY: The Environmental Protection Agency (EPA) is proposing to
approve, under the Clean Air Act (CAA), the limited maintenance plan
(LMP) for the 2006 PM<INF>2.5</INF> national ambient air quality
standard (NAAQS) for the New Jersey portion of both of New Jersey's
multi-state maintenance areas: the Northern New Jersey portion of the
New York-Northern New Jersey-Long Island, NY-NJ-CT (Northern New
Jersey) maintenance area and the New Jersey portion of the
Philadelphia-Wilmington, PA-NJ-DE (Southern New Jersey) maintenance
area. This LMP was submitted on July 6, 2023, and supplemented on June
6, 2024, by the New Jersey Department of Environmental Protection
(NJDEP). The plan addresses the second 10-year maintenance period for
particulate matter with an aerodynamic diameter less than or equal to a
nominal 2.5 micrometers, known as PM<INF>2.5</INF>. The EPA is
proposing approval of New Jersey's LMP submission because it provides
for the maintenance of the 2006 24-hour PM<INF>2.5</INF> NAAQS through
the end of the second 10-year portion of the maintenance period. In
addition, the EPA completed the adequacy review process of this New
Jersey PM<INF>2.5</INF> LMP for transportation conformity purposes on
June 7, 2024.
DATES: Written comments must be received on or before September 2,
2025.
ADDRESSES: Submit your comments, identified by Docket ID Number EPA-
R02-OAR-2024-0288 at <a href="https://www.regulations.gov">https://www.regulations.gov</a>. Although listed in
the index, some information is not publicly available, e.g., Controlled
Unclassified Information (CUI) (formerly referred to as Confidential
Business Information (CBI)) or other information whose disclosure is
restricted by statute. Certain other material, such as copyrighted
material, is not placed on the internet and will be publicly available
only in hard copy form. Publicly available docket materials are
available electronically through <a href="https://www.regulations.gov">https://www.regulations.gov</a>. Follow
the online instructions for submitting comments. Once submitted,
comments cannot be edited or removed from <a href="http://Regulations.gov">Regulations.gov</a>. The EPA may
publish any comment received to its public docket. Do not submit
electronically any information you consider to be CUI or other
information whose disclosure is restricted by statute. Multimedia
submissions (audio, video, etc.) must be accompanied by a written
comment. The written comment is considered the official comment and
should include discussion of all points you wish to make. The EPA will
generally not consider comments or comment contents located outside of
the primary submission (i.e., on the web, cloud, or other file sharing
system). For additional submission methods, the full EPA public comment
policy, information about CUI or multimedia submissions, and general
guidance on making effective comments, please visit <a href="https://www.epa.gov/dockets/commenting-epa-dockets">https://www.epa.gov/dockets/commenting-epa-dockets</a>.
FOR FURTHER INFORMATION CONTACT: Ysabel Banon, Environmental Protection
Agency, Air Programs Branch, Region 2, 290 Broadway, New York, New York
10007-1866, at (212) 637-3782, or by email at <a href="/cdn-cgi/l/email-protection#d9bbb8b7b6b7f7a0aab8bbbcb599bca9b8f7beb6af"><span class="__cf_email__" data-cfemail="fb999a959495d582889a999e97bb9e8b9ad59c948d">[email protected]</span></a>.
SUPPLEMENTARY INFORMATION:
I. Background and Purpose
A. The PM<INF>2.5</INF> NAAQS
B. Regulatory Actions in Northern New Jersey and Southern New
Jersey Counties
II. The Limited Maintenance Plan Option
A. Demonstration of Maintenance Using the Limited Maintenance
Plan Option
B. Transportation Conformity Under Limited Maintenance Plan
Option
C. General Conformity Under Limited Maintenance Plan Option
III. The EPA's Analysis of the State's Submittal
A. Demonstration of Qualification for the Limited Maintenance
Plan Option
B. Attainment Emission Inventory
C. Air Quality Monitoring Network
D. Verification of Continued Attainment
E. Contingency Provisions
IV. Proposed Action
V. Statutory and Executive Order Reviews
I. Background and Purpose
A. The PM2.5 NAAQS
The EPA has established NAAQS for particulate matter with an
aerodynamic diameter less than or equal to 2.5 micrometers, known as
PM<INF>2.5</INF>, to protect
[[Page 35997]]
human health and the environment. In 1997, the EPA established the
first PM<INF>2.5</INF> standards based on significant scientific
evidence and health studies demonstrating the serious health effects
associated with exposure to PM<INF>2.5</INF>. The EPA set an annual
standard of 15.0 micrograms per cubic meter ([micro]g/m\3\) and a 24-
hour (daily) standard of 65 [micro]g/m\3\. In 2006, the EPA
strengthened the 24-hour PM<INF>2.5</INF> NAAQS by revising it to 35
[micro]g/m\3\ and retained the level of the annual PM<INF>2.5</INF>
standard at 15.0 [micro]g/m\3\. Subsequently, in 2012, the EPA
established an annual primary PM<INF>2.5</INF> NAAQS at 12.0 [micro]g/
m\3\ and retained the 2006 24-hour PM<INF>2.5</INF> NAAQS at 35
[micro]g/m\3\. In early 2024, the EPA strengthened the level of the
annual primary PM<INF>2.5</INF> standard to 9.0 [micro]g/m\3\ and
retained the 2006 24-hour PM<INF>2.5</INF> NAAQS at 35 [micro]g/m\3\.
B. Regulatory Actions in Northern New Jersey and Southern New Jersey
Counties
Hereafter, ``Northern New Jersey'' means the New Jersey portion of
the New York-Northern New Jersey-Long Island, NY-NJ-CT maintenance area
(for the 2006 24-hour PM<INF>2.5</INF> NAAQS), which is comprised of
Bergen, Essex, Hudson, Mercer, Middlesex, Monmouth, Morris, Passaic,
Somerset, and Union Counties, and ``Southern New Jersey'' means the New
Jersey portion of Philadelphia-Wilmington, PA-NJ-DE maintenance area
(for the 2006 24-hour PM<INF>2.5</INF> NAAQS), which is comprised of
Burlington, Camden, and Gloucester Counties. The EPA promulgated the
designations for Northern New Jersey and Southern New Jersey as
PM<INF>2.5</INF> nonattainment areas for the 1997 annual
PM<INF>2.5</INF> NAAQS on January 5, 2005 (70 FR 944, January 5, 2025)
and the 2006 24-hour PM<INF>2.5</INF> NAAQS on November 13, 2009 (74 FR
58688, November 13, 2009), due to measured violations of the standards.
These designations became effective on April 5, 2005, and December 14,
2009, respectively. On December 26, 2012, the NJDEP submitted a request
to the EPA to redesignate the Northern New Jersey and Southern New
Jersey nonattainment areas to attainment for both the 1997 annual and
2006 24-hour PM<INF>2.5</INF> NAAQS. This submittal included a
maintenance plan to provide for maintenance of both of the
PM<INF>2.5</INF> NAAQS in the areas for 10 years. The EPA redesignated
Northern New Jersey and Southern New Jersey to attainment for the 1997
and 2006 PM<INF>2.5</INF> NAAQS on September 4, 2013 (78 FR 54396,
September 4, 2013) and approved the associated maintenance plan into
the New Jersey State Implementation Plan (SIP). The purpose of the
NJDEP's July 6, 2023 (supplemented on June 6, 2024) LMP submission is
to fulfill the second 10-year planning requirement of CAA section
175A(b), thus ensuring PM<INF>2.5</INF> NAAQS compliance through the
end of the maintenance period.
In the LMP submittal, the NJDEP indicates that it seeks approval of
the LMP for both the 2006 24-hour standard as well as the 1997 annual
standard. However, as explained in the PM<INF>2.5</INF> SIP
Requirements Rule (81 FR 58009, October 24, 2016), a second 10-year
maintenance plan for the revoked 1997 annual PM<INF>2.5</INF> NAAQS is
not required. Therefore, the EPA will only proceed with proposing
approval of the LMP for the 2006 24-hour PM<INF>2.5</INF> NAAQS.
II. The Limited Maintenance Plan Option
A. Demonstration of Maintenance Using the Limited Maintenance Plan
Option
Section 175A of the CAA, 42 U.S.C. 7505a, sets forth the elements
of a maintenance plan. Under section 175A, a state must submit a
revision to the SIP that provides for maintenance of the applicable
NAAQS for at least 10 years after an area is redesignated to
attainment. Section 175A also requires that eight years into the first
maintenance period, the state must submit a second maintenance plan
demonstrating that the area will continue to attain for the following
10-year period.
The EPA has published long-standing guidance for states on
developing maintenance plans.\1\ The Calcagni Memo 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). The EPA clarified in subsequent limited
maintenance plan guidance memoranda that certain nonattainment areas
could meet the CAA section 175A, 42 U.S.C. 7505a, requirement to
provide for maintenance by demonstrating that an area's design value is
well below the NAAQS and that the historical stability of the area's
air quality levels shows that the area is unlikely to violate the NAAQS
in the future.\2\ The EPA refers to this streamlined demonstration of
maintenance as an LMP.
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\1\ See John Calcagni, Director, Air Quality Management
Division, the EPA Office of Air Quality Planning and Standards
(``OAQPS''), ``Procedures for Processing Requests to Redesignate
Areas to Attainment,'' September 4, 1992 (the ``Calcagni Memo''). A
copy of this memorandum can be found in the docket for this proposed
rulemaking.
\2\ See Joseph Paisie, OAQPS, ``Limited Maintenance Plan Option
for Nonclassifiable CO Nonattainment Areas,'' dated October 6, 1995;
and Lydia Wegman, OAQPS, ``Limited Maintenance Plan Option for
Moderate PM<INF>10</INF> Nonattainment Areas'' (``PM<INF>10</INF>
LMP Guidance''), dated August 9, 2001. Copies of these guidance
memoranda can be found in the docket for this proposed rulemaking.
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Most recently, in October 2022, the EPA released guidance extending
this streamlined option for demonstrating maintenance under CAA section
175A to certain PM<INF>2.5</INF> areas, titled, ``Guidance on Limited
Maintenance Plan Option for Moderate PM<INF>2.5</INF> Nonattainment
Areas and PM<INF>2.5</INF> Maintenance Areas'' (``PM<INF>2.5</INF> LMP
Guidance'').\3\ CAA section 175A declares that maintenance plan
revisions must ``provide for the maintenance'' of the relevant NAAQS,
but does not specify how states must do so. The EPA has therefore
interpreted that the LMP is an appropriate way for states to meet the
requirements of providing for maintenance under limited circumstances.
As noted in the PM<INF>2.5</INF> LMP Guidance, states seeking an LMP
should still submit the other maintenance plan elements outlined in the
Calcagni Memo, including: an attainment emissions inventory, provisions
for the continued operation of the ambient air quality monitoring
network, verification of continued attainment, and a contingency plan
in the event of a future violation of the NAAQS. Moreover, states
seeking an LMP must still submit their CAA section 175A maintenance
plan as a revision to their SIP, with all attendant notice and comment
procedures.
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\3\ See the guidance document developed by the Office of Air
Quality Planning and Standards, the Office of Transportation and Air
Quality, and the Office of Air and Radiation, titled, ``Guidance on
the Limited Maintenance Plan Option for Moderate PM<INF>2.5</INF>
Nonattainment Areas and PM<INF>2.5</INF> Maintenance Areas.'' A copy
of this guidance can be found in the docket for this proposed
rulemaking.
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[[Page 35998]]
The PM<INF>2.5</INF> LMP Guidance, like the PM<INF>10</INF> LMP
Guidance, allows states to demonstrate that certain areas qualify for
an LMP by showing that, based on their recent measured air quality,
they are unlikely to violate the NAAQS in the future. Specifically, the
PM<INF>2.5</INF> LMP Guidance relies on the critical design value (CDV)
concept, which is used to assess the probability of future violations.
This guidance directs states to calculate a site-specific CDV for the
monitoring site in an area with the highest design value, and for all
other active monitoring sites in the area with complete data. The
PM<INF>2.5</INF> LMP Guidance states that areas should show that the
average design value (ADV) for each monitoring site in the area (i.e.,
the average of at least the most recent consecutive five-years of
PM<INF>2.5</INF> design values) does not exceed each site's associated
CDV.\4\ The probability of a future exceedance, based on the area's
historical air quality and variability, is under 10 percent if the ADV
for each monitoring site in the area is less than its CDV. The CDV
calculation for a monitoring site involves the following parameters:
(1) the level of the relevant NAAQS; (2) the co-efficient of variation
of recent design values measured at that site; and (3) a statistical
parameter corresponding to a 10-percent probability of exceedance, such
that sites with historically high variability in design values result
in a lower (or more stringent) CDV. The eligibility calculation
equations for the CDV demonstration are shown in Table 1.
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\4\ The EPA recommends that the ADV be calculated using at least
five years of design values, each representing a three-year period,
because this approach would rely on a more robust dataset. However,
we acknowledge that an alternative interpretation may be acceptable,
where these variables could be calculated using three years of
design values, collectively representing five years of air quality
data.
[GRAPHIC] [TIFF OMITTED] TP31JY25.002
B. Transportation Conformity Under Limited Maintenance Plan Option
Transportation conformity is required by section 176(c) of the CAA,
42 U.S.C. 7506(c). Under that provision, conformity to a SIP means that
transportation activities will not cause or contribute to new air
quality violations, worsen existing violations, or delay timely
attainment of the NAAQS or any required interim emission reductions or
other milestones in any area. See CAA 176(c)(1)(A) and (B), 42 U.S.C.
7506(c)(1)(A) and (B). The EPA's transportation conformity rule at 40
CFR part 93 subpart A establishes the criteria and procedures to
determine whether metropolitan transportation plans, transportation
improvement programs, and federally supported highway and transit
projects conform to the purpose of the SIP. Transportation conformity
applies for transportation-related criteria pollutants in nonattainment
areas and redesignated attainment areas with a CAA section 175A
maintenance plan (i.e., maintenance areas).\5\
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\5\ In addition to PM<INF>2.5</INF>, the criteria pollutants for
which transportation conformity applies include ozone, carbon
monoxide, particulate matter with an aerodynamic diameter less than
or equal to 10 micrometers, and nitrogen dioxide. See 40 CFR
93.102(b).
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While qualification for the LMP option does not exempt an area from
the need to determine conformity, an area with an adequate \6\ or
approved LMP may show transportation conformity to a transportation
plan or a transportation improvement program without a regional
emissions analysis for the relevant NAAQS and pollutant (40 CFR
93.109(e)). However, such areas are still required to have
transportation plan and transportation improvement program conformity
determinations that meet applicable requirements (see Table 1 in 40 CFR
93.109), including a regional emissions analysis for other NAAQS for
which the areas are nonattainment or maintenance (e.g., the 2015 and
2008 ozone NAAQS).
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\6\ The EPA's adequacy process is described in 40 CFR 93.118(e)
and (f) with the EPA's adequacy website at: <a href="https://www.epa.gov/state-and-local-transportation/adequacy-review-state-implementation-plan-sip-submissions-conformity">https://www.epa.gov/state-and-local-transportation/adequacy-review-state-implementation-plan-sip-submissions-conformity</a>.
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For the 2006 PM<INF>2.5</INF> NAAQS, the areas also remain subject
to the other transportation conformity requirements of 40 CFR part 93,
subpart A, including fulfilling project-level conformity analyses
requirements and consultation requirements. In addition, an LMP must
demonstrate that it is unreasonable to expect that the qualifying area
would experience enough growth in on-road emissions during the
maintenance period such that a violation of the relevant NAAQS would
occur (40 CFR 93.109(e)). Furthermore, consistent with the
PM<INF>2.5</INF> LMP Guidance, if re-entrained road dust has been found
to be significant for PM<INF>2.5</INF> transportation conformity
purposes under 40 CFR 93.102(b)(3), the plan should include an on-road
PM<INF>2.5</INF> emissions analysis consistent with the methodology
provided in attachment B of the PM<INF>10</INF> LMP Guidance. The EPA
discusses the NJDEP's submittal in section III.A of this document.
Moreover, the NJDEP's submittal in section 3.2 of its LMP explains that
the on-road direct PM<INF>2.5</INF> and NO<INF>X</INF> emission
inventories \7\ have steadily decreased (bolded in table 5 of this
document).
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\7\ For reference, the 2007 onroad direct PM<INF>2.5</INF> was
3,677 tpy, which decreased to 1.397 tpy for 2017 in the Northern New
Jersey area.
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Along with this proposed action, the EPA has completed an adequacy
review
[[Page 35999]]
process \8\ for the Northern New Jersey and Southern New Jersey LMP.
See 40 CFR 93.118(e)(4) and 93.118(f). The EPA's adequacy review
assessed whether the demonstration required by 40 CFR 93.109(e) is met.
The EPA Region 2 sent a letter to the NJDEP on March 18, 2024, stating
that the LMP for the Northern New Jersey and Southern New Jersey
maintenance areas is adequate for transportation conformity purposes
for the 2006 PM<INF>2.5</INF> NAAQS and published our finding in the
Federal Register on June 7, 2024.\9\ An adequacy review is separate
from the EPA's final decision on a SIP submission and should not be
used to prejudge the EPA's final action for the SIP. Even if the EPA
finds a limited maintenance plan adequate for transportation conformity
purposes, the SIP could later be disapproved.
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\8\ See 89 FR 45658 (May 23, 2024).
\9\ Letter from the EPA to the NJDEP identifying that its
Limited Maintenance Plan was found to be adequate. See <a href="https://www.epa.gov/system/files/documents/2024-08/nj-ny-ct-pa-de-sip-ltr-2024-03-11.pdf">https://www.epa.gov/system/files/documents/2024-08/nj-ny-ct-pa-de-sip-ltr-2024-03-11.pdf</a>.
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C. General Conformity Under Limited Maintenance Plan Option
The general conformity rule of November 30, 1993 (58 FR 63214,
November 30, 1993), applies to nonattainment areas and redesignated
attainment areas operating under maintenance plans (i.e., maintenance
areas). General conformity requires that these areas comply with the
purposes of a SIP; this means that Federal activities (that are not
related to transportation plans, programs, and projects) will not cause
or contribute to any new violation of any standard in any area,
increase the frequency or severity of any existing violation, or delay
timely attainment of any standard (or any required interim emission
reductions or other milestones) in any area (CAA section 176(c)(1)(A)
and (B), 42 U.S.C. 7506(c)(1)(A) and (B)). As noted in the
PM<INF>2.5</INF> LMP Guidance, the EPA's general conformity regulations
do not distinguish between maintenance areas with an approved ``full
maintenance plan'' and those with an approved LMP. Thus, maintenance
areas with an approved LMP are subject to the same general conformity
requirements under 40 CFR part 93 subpart B, as those covered by a
``full maintenance plan.'' Full compliance with the general conformity
program is required within an LMP.
III. The EPA's Analysis of the State's Submittal
A. Demonstration of Qualification for the Limited Maintenance Plan
Option
The EPA redesignated Northern New Jersey and Southern New Jersey to
attainment of the 2006 PM<INF>2.5</INF> NAAQS on September 4, 2013 (78
FR 54396, September 4, 2013). Table 2 of this document below shows
historical design values for the New York-Northern New Jersey-Long
Island, NY-NJ-CT and Philadelphia-Wilmington, PA-NJ-DE maintenance
areas since the area was redesignated in 2013.\10\ Table 3 \11\ shows
the historical design values for each monitoring site within the
Northern New Jersey and Southern New Jersey maintenance areas since
2013.\12\ The 2006 24-hour PM<INF>2.5</INF> NAAQS is attained when the
three-year average of the 98th percentile of 24-hour PM<INF>2.5</INF>
concentrations is equal to or less than 35 [mu]g/m\3\, and as shown in
Tables 2 and 3 of this document, the areas have been measuring air
quality well below the 2006 PM<INF>2.5</INF> NAAQS and PM<INF>2.5</INF>
concentrations have been trending downward over time. These design
values from the individual monitoring sites within the maintenance
areas demonstrate the stability of ambient PM<INF>2.5</INF>
concentrations over time.
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\10\ See <a href="https://www.epa.gov/air-trends/air-qualitydesign-values">https://www.epa.gov/air-trends/air-qualitydesign-values</a>.
\11\ Monitors located in Fort Lee Library (AQS ID 34003003),
Newark-Willis Center (AQS ID 340130015), Lexington & E. Ferris Sts.
Newark (ASQ ID 340130016), Union City (AQS ID 340172002), Washington
Crossing State Park (AQS ID 340218001), New Brunswick (AQS ID
340230006), Morristown Amb. Squad (AQS ID 340270004), Elizabeth
Mitchell Building (AQS ID 340390006), and Gibbston (AQS ID
340150004) were not included in the analysis due to site closure.
Monitors located at Clarksboro (AQS ID 340150002), and Union City
High School (AQS ID 340170008) were not included in the analysis due
to having invalid data for most years.
\12\ See n. 9.
Table 2--Design Values (DV) ([mu]g/m\3\) History for the 2006 24-Hr PM2.5 NAAQS in the New York-Northern New
Jersey-Long Island, NY-NJ-CT and Philadelphia-Wilmington, PA-NJ-DE Areas Since Redesignation to Attainment
[2013-2024]
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New York-Northern New Jersey-
Design value period Long Island, NY-NJ-CT PM2.5 Philadelphia-Wilmington, PA-NJ-
design value DE PM2.5 design value
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2011-2013....................................... 30 30
2012-2014....................................... 27 29
2013-2015....................................... 28 29
2014-2016....................................... 24 27
2015-2017....................................... 23 25
2016-2018....................................... 23 24
2017-2019....................................... 23 26
2018-2020....................................... 22 26
2019-2021....................................... 22 24
2020-2022....................................... 21 22
2021-2023....................................... 27 26
2022-2024....................................... 23 27
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Data provided by the EPA's Air Quality System (AQS).
[[Page 36000]]
Table 3--DV for the 2006 PM2.5 24-Hr NAAQS at Monitoring Sites in the Northern New Jersey and Southern New Jersey Areas in [mu]g/m\3\
[2013-2024]
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2020-2022 2021-2023 2022-2024
AQS site ID Site name County 2013-2015 2014-2016 2015-2017 2016-2018 2017-2019 2018-2020 2019-2021 \b\ \b\ \b\
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Northern New Jersey
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340030010.................. Fort Lee Near Road....... Bergen................. \a\ 27 \a\ 24 22 22 23 \a\ 25 \a\ 24 \a\ 21 24 21
340130003.................. Newark-Firehouse......... Essex.................. 25 24 20 19 20 21 21 \a\ 20 \a\ 19 \a\ 17
340171003.................. Jersey City Firehouse.... Hudson................. 27 23 21 19 20 \a\ 22 \a\ 22 \a\ 20 21 20
340210005.................. Rider University......... Mercer................. ND \a\ 17 \a\ 17 17 17 17 18 17 \a\ 21 19
340210008.................. Trenton.................. Mercer................. 24 22 20 17 19 \a\ 19 \a\ 19 \a\ 18 \a\ 21 19
340230011.................. Rutgers University....... Middlesex.............. ND \a\ 18 \a\ 19 19 18 19 19 19 21 19
340273001.................. Chester.................. Morris................. 18 17 16 14 14 \a\ 15 \a\ 17 \a\ 16 20 18
340310005.................. Paterson................. Passaic................ 25 22 19 18 19 \a\ 18 \a\ 18 \a\ 16 \a\ 22 \a\ 20
340390004.................. Elizabeth Lab............ Union.................. 28 24 23 21 22 22 22 21 22 20
340392003.................. Rahway................... Union.................. 25 24 20 18 19 \a\ 20 \a\ 20 \a\ 18 21 20
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Southern New Jersey
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340070010.................. South Camden \c\......... Camden................. 26 24 25 24 25 22 23 20 22 19
340071007.................. Pennsauken............... Camden................. 22 21 19 17 19 \a\ 18 \a\ 21 \a\ 18 19 16
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\a\ Invalid data. This data was excluded from the ADV calculation.
\b\ Although the 2020-2022, 2021-2023, and 2022-2024 design values were not included in the NJDEP's LMP submission to the EPA, they are provided here to reflect the latest available air
quality data.
\c\ The NJDEP combined the Spruce Street (ID: 340070002) monitoring station data with the new South Camden monitoring station, due to the lease ending at the Spruce Street monitoring
station.\13\
ND = No data available.
The EPA proposes to find that the Northern New Jersey and Southern
New Jersey areas meet the critical design value demonstration for an
LMP. As noted above, the parameters of the CDV calculation include the
level of the relevant NAAQS, the co-efficient of variation of recent
design values, and a statistical parameter corresponding to a 10-
percent probability of future violation. The CDV demonstration is
designed such that if a site's ADV is lower than the site's CDV, the
probability of a future violation of the NAAQS is less than 10
percent.\14\ Section 3.1 of the NJDEP's LMP submittal demonstrates the
likelihood of continued attainment. The EPA reviewed the data and
methodology provided by the state and we find that each monitor's five-
year ADV is well below the corresponding site-specific CDV, as shown in
Table 4.
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\13\ See attached request from the NJDEP seeking to combine the
data from these two monitoring stations, and the EPA's response
letter, which can be found in the docket for this proposed
rulemaking.
\14\ See the ``Example Site Calculation,'' at page 7 of the
October 2022 PM<INF>2.5</INF> LMP guidance, found in the docket for
this rulemaking.
Table 4--Results of Calculation of CDVs at the Northern New Jersey and Southern New Jersey Monitors for the 24-
Hour PM2.5 NAAQS
----------------------------------------------------------------------------------------------------------------
ADV (2013-2024) CDV (2013-
Site name Monitor \a\ 2024) Qualify for LMP?
----------------------------------------------------------------------------------------------------------------
Northern New Jersey
----------------------------------------------------------------------------------------------------------------
Fort Lee Near Road................. 340030010 \b\ 22.33 33.37 Yes.
Newark--Firehouse.................. 340130003 20.60 29.40 Yes.
Jersey City Firehouse.............. 340171003 22.00 28.68 Yes.
Rider University................... 340210005 17.20 33.66 Yes.
Trenton............................ 340210008 20.40 29.09 Yes.
Rutgers............................ 340230011 19.40 32.69 Yes.
Chester............................ 340273001 15.80 29.82 Yes.
Paterson........................... 340310005 20.60 28.82 Yes.
Elizabeth Lab...................... 340390004 23.60 29.77 Yes.
Rahway............................. 340392003 21.20 28.57 Yes.
----------------------------------------------------------------------------------------------------------------
Southern New Jersey
----------------------------------------------------------------------------------------------------------------
South Camden....................... 340070002 24.80 33.28 Yes.
Pennsauken......................... 340071007 19.60 30.37 Yes.
----------------------------------------------------------------------------------------------------------------
\a\ The design values averaged for the ADV span seven consecutive years of data between 2013-2023.
\b\ Only three years of design values (five years of data) were used for the `Fort Lee Near Road' monitor due to
invalid data.
The EPA also proposes to find that the NJDEP LMP submittal
satisfies transportation conformity regulations under the LMP option.
New Jersey holds annual transportation conformity interagency
consultation meetings, which include Federal, State, and local
agencies. Additionally, the LMP SIP submittal for Northern New Jersey
and Southern New Jersey was developed in accordance with interagency
consultation between Federal, State, and
[[Page 36001]]
local partners. This transportation conformity regulation requires that
an LMP would have to demonstrate that it would be unreasonable to
expect that a maintenance area would experience enough motor vehicle
emissions growth for a NAAQS violation to occur (40 CFR 93.109(e)).
In the 2022 PM<INF>2.5</INF> LMP Guidance, the EPA clarified that
an area submitting the second 10-year maintenance plan may be eligible
for the LMP option as long as monitored air quality data and its
historical and projected vehicle miles traveled (VMT) support the LMP
option. The state included both air quality data and the VMT trend data
of the maintenance areas to satisfy transportation conformity
regulations under an LMP option. As discussed above, Table 3 of this
document shows that the areas have been measuring air quality well
below the 2006 PM<INF>2.5</INF> NAAQS and PM<INF>2.5</INF>
concentrations have been trending downward over time. The design values
from the individual monitoring sites within the maintenance areas
demonstrate the stability of ambient PM<INF>2.5</INF> concentrations
over time. The latest draft DV for 2022-2024 is approximately 22
percent below the 24-hour 35 [mu]g/m\3\ standard in the Northern New
Jersey area and approximately 34 percent below the standard in the
Southern New Jersey area. Based on yearly statewide data,\15\ VMT
increased approximately 2.23% in 2022 and 3.87% in 2023, after a steady
annual VMT increase of about 0.8 percent between 2013 and 2019.The VMT
projections considered by the NJDEP were based on transportation models
provided by the Metropolitan Planning Organizations (MPOs).\16\ The
MPOs provided historical and future modeled VMT from 2017 to 2050 to
determine the VMT growth trends for 2033.\17\ The Northern New Jersey
PM<INF>2.5</INF> maintenance area has a projected VMT growth of about
0.27 percent per year between 2023 and 2033. The Southern New Jersey
PM<INF>2.5</INF> maintenance area has a projected VMT growth of about
0.18 percent per year between 2023 to 2033.
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\15\ See <a href="https://www.nj.gov/transportation/refdata/roadway/pdf/hpms2023/prmvmt_23.pdf">https://www.nj.gov/transportation/refdata/roadway/pdf/hpms2023/prmvmt_23.pdf</a>.
\16\ The MPO for the Northern New Jersey area is the North
Jersey Transportation Planning Authority, and for the Southern New
Jersey area, the MPO is the Delaware Valley Regional Planning
Commission.
\17\ A copy of the MPOs' VMT projections are found at the docket
of this rulemaking.
---------------------------------------------------------------------------
Due to air quality and VMT trends, the EPA proposes to find that
the Northern New Jersey and the Southern New Jersey areas meet the
qualification criteria set forth in the PM<INF>2.5</INF> LMP Guidance.
The EPA also proposes that, based on the same data, it would be
unreasonable to expect that either area will experience growth in motor
vehicle emissions sufficient to cause a violation of the 2006 24-hour
PM<INF>2.5</INF> NAAQS over the second maintenance period.
B. Attainment Emission Inventory
As noted previously, states that qualify for an LMP must still meet
the other elements of a maintenance plan, as articulated in the
Calcagni Memo. This includes an attainment year emissions inventory.
The NJDEP's Northern New Jersey and Southern New Jersey LMP submission
includes an emissions inventory, with a base year of 2007, and a
periodic emission inventory for 2017.\18\ This inventory was prepared
as part of the 2017 National Emissions Inventory 9, Version 2, under
the EPA's Air Emissions Reporting Rule (73 FR 76539, December 17,
2008). The 2017 emission inventory used the nonroad model included in
Motor Vehicle Simulator (MOVES)14b,\19\ which was used to generate
emission factors for on-road vehicle emission estimates. The 2017
periodic emission inventory represents the most recent emissions
inventory data available at the time the state prepared the submission.
The 2017 periodic emission inventory is also representative of the
level of emissions during a period during which the area shows
monitored attainment of the NAAQS and is consistent with the data used
to determine applicability of the LMP option (i.e., having no
violations of the NAAQS during the five-year period used to calculate
the design value). Table 5 of this document shows the total
PM<INF>2.5</INF> and NO<INF>X</INF> emissions by sector for 2007 and
2017 in Northern New Jersey and Southern New Jersey in tons per year,
included in the state's submission. Table 5 represents a 29 percent
direct decrease in PM<INF>2.5</INF> emissions, and a 46 percent
decrease in NO<INF>X</INF> emissions, for the Northern New Jersey area;
and a 31 percent direct decrease in PM<INF>2.5</INF> emissions, and a
54 percent decrease in NO<INF>X</INF> emissions, for the Southern New
Jersey area. Table 6 of this document shows the total 2017 emissions in
Northern and Southern New Jersey in tons per year, included in the
state's submission.
---------------------------------------------------------------------------
\18\ See 88 FR 55576 (August 16, 2023).
\19\ See <a href="https://www.epa.gov/moves/information-running-moves2014b">https://www.epa.gov/moves/information-running-moves2014b</a>.
Table 5--PM2.5 and NOX Emissions by Sector for 2007 and 2017 (tons/year) for the Northern New Jersey and
Southern New Jersey Maintenance Areas
----------------------------------------------------------------------------------------------------------------
PM2.5 NOX
Sector ----------------------------------------------------
2007 2017 2007 2017
----------------------------------------------------------------------------------------------------------------
Northern New Jersey Maintenance Area (tons/year)
----------------------------------------------------------------------------------------------------------------
Point...................................................... 4,937 1,086 15,827 5,779
Area Other................................................. 4,432 6,781 16,611 16,167
Fugitive Road Dust......................................... 1,001 559 ........... ...........
Onroad..................................................... 3,677 1,397 93,385 38,932
Nonroad.................................................... 2,497 1,706 39,457 27,377
Event \a\.................................................. 66 233 152 126
----------------------------------------------------
Total.................................................. 16,610 11,762 164,792 88,293
----------------------------------------------------------------------------------------------------------------
Percent Change............................................. ........... -29% ........... -46%
----------------------------------------------------------------------------------------------------------------
Southern New Jersey Maintenance Area (tons/year)
----------------------------------------------------------------------------------------------------------------
Point...................................................... 799 532 4,453 2,226
Area Other................................................. 2,172 1,798 3,331 3,179
Fugitive Road Dust......................................... 239 160 ........... ...........
[[Page 36002]]
Onroad..................................................... 1,055 307 26,992 9,529
Nonroad.................................................... 560 310 6,790 4,270
Event \a\.................................................. 685 690 152 126
----------------------------------------------------
Total.................................................. 5,510 3,796 41,718 19,330
----------------------------------------------------------------------------------------------------------------
Percent Change............................................. ........... -31% ........... -54%
----------------------------------------------------------------------------------------------------------------
Note: Transportation fractions have been applied to the PM2.5 fugitive dust.
\a\ Includes prescribed forest fire, and forest wildfire emissions.
Table 6--2017 Emissions (tons/year) for the Northern New Jersey and Southern New Jersey Maintenance Areas
----------------------------------------------------------------------------------------------------------------
Northern New Jersey Southern New Jersey
Pollutant maintenance areas maintenance areas
(tons/year) (tons/year)
----------------------------------------------------------------------------------------------------------------
PM2.5............................................................. 11,762 3,797
Ammonia (NH3)..................................................... 3,381 1,177
Nitrogen Oxides (NOX)............................................. 88,293 19,330
Sulfur dioxide (SO2).............................................. 1,694 984
Volatile organic compounds (VOCs)................................. 89,305 24,644
----------------------------------------------------------------------------------------------------------------
C. Air Quality Monitoring Network
Once an area is redesignated, the state must continue to operate an
appropriate air monitoring network in accordance with 40 CFR part 58 to
verify the attainment status of the area. The NJDEP continues to
operate a PM<INF>2.5</INF> monitoring network sited and maintained in
accordance with Federal siting and design criteria in 40 CFR part 58,
and in consultation with the EPA, Region 2. The NJDEP submitted its
2023 Annual Monitoring Network Plan on August 16, 2023,\20\ which the
EPA approved on December 4, 2023.\21\ In the LMP submittal, the NJDEP
commits to continued operation of its PM<INF>2.5</INF> monitors within
Northern New Jersey and Southern New Jersey, consistent with the EPA-
approved NJDEP annual network plan. Currently, there are ten
PM<INF>2.5</INF> monitors in the Northern New Jersey maintenance area
and three PM<INF>2.5</INF> monitors in the Southern New Jersey
maintenance area.
---------------------------------------------------------------------------
\20\ See the NJDEP's 2023 Annual Air Monitoring Network Plan,
found in the docket for this proposed rulemaking.
\21\ See the EPA's approval Letter for the NJDEP's 2023 Annual
Air Monitoring Network Plan, found in the docket for this proposed
rulemaking.
---------------------------------------------------------------------------
D. Verification of Continued Attainment
The level of the 2006 24-hour PM<INF>2.5</INF> NAAQS is 35 [mu]g/
m\3\ (40 CFR 50.13). The NAAQS is attained when the three-year average
of the 98th percentile of PM<INF>2.5</INF> concentrations is equal to
or less than the NAAQS, as demonstrated in the NJDEP's LMP submittal.
As stated previously, the NJDEP commits to verifying continued
attainment of the PM<INF>2.5</INF> standards through the maintenance
plan period with the operation of an appropriate PM<INF>2.5</INF>
monitoring network. In developing the second 10-year maintenance plan,
the NJDEP evaluated the prior nine years of complete, quality-assured
data for Northern New Jersey and Southern New Jersey at the time of the
submittal (i.e., 2013 through 2021) to verify continued attainment of
the standard. Certified air quality data from 2023, as shown in Table 3
of this document, confirms continued attainment of the standard.\22\
---------------------------------------------------------------------------
\22\ See n. 9.
---------------------------------------------------------------------------
E. Contingency Provisions
CAA section 175A(d), 42 U.S.C. 7505a(d), states that a maintenance
plan must include contingency provisions, as necessary, to ensure
prompt correction of any violation of the relevant NAAQS, which may
occur after redesignation of the area to attainment. As explained in
the Calcagni Memo, these contingency provisions are an enforceable part
of the federally approved SIP. The maintenance plan should clearly
identify the events that would ``trigger'' the adoption and
implementation of a contingency provision, the contingency provision(s)
that would be adopted and implemented, and the schedule indicating the
time frame by which the state would adopt and implement the
provision(s). The Calcagni Memo states that the EPA will determine the
adequacy of a contingency plan on a case-by-case basis. At a minimum,
the plan must require that the state implement all measures contained
in the CAA part D nonattainment plan for the area prior to
redesignation.
According to the state's submittal, the NJDEP will continue to
adhere to the contingency plan that it submitted with its first
maintenance plan, which includes the required contingency provisions to
ensure the state will promptly correct any violation of the 2006
PM<INF>2.5</INF> NAAQS in the areas. New Jersey's contingency measures
will use the following indicators to determine the cause of elevated
levels, and implement contingency measures, as necessary, in accordance
with the described schedule:
1. If monitored PM<INF>2.5</INF> concentrations in any year exceed
the level of the NAAQS from the 2006 24-hour PM<INF>2.5</INF> standard
of 35 [mu]g/m\3\, the NJDEP will perform a data assessment to determine
the cause of the violation. This assessment will be performed when the
98th percentile of the 24-hour average daily concentrations exceeds 35
[mu]g/m\3\ at any New Jersey air monitoring site. The NJDEP will
perform this evaluation within six months of the data certification.
New Jersey will work with the other states in its shared multi-state
nonattainment areas as necessary.
2. If 24-hour PM<INF>2.5</INF> design values exceed 35 [micro]g/
m\3\, the NJDEP will
[[Page 36003]]
evaluate all appropriate data to determine the cause using the same
analyses discussed in the preceding paragraph. The NJDEP will perform
this evaluation within six months of the determination of a violation.
3. Based on any findings, New Jersey will make a judgment on
whether the violation was caused by an exceptional event or a violation
of an existing rule or permit. The State will rely on one or more of
the following contingency measures for any other violation:
<bullet> Onroad Vehicle Fleet Turnover
<bullet> Nonroad Vehicle and Equipment Fleet Turnover
<bullet> Heavy Duty Diesel Inspection and Maintenance Program, New
Jersey Administrative Code (N.J.A.C.) 7:27-14, 15; and N.J.A.C. 7:27B-
5. B-5.
If necessary, the NJDEP will evaluate the feasibility and
applicability of additional measures, how they relate to the cause and
location of the violation, and if these additional measures would
correct the violation.
The NJDEP will perform this evaluation within six months of the
determination of a violation. If it is determined that a new rule is
required or appropriate to correct a violation of the NAAQS, the NJDEP
will propose a new rule within 18 months, and take final action within
30 months, of the determination of a violation.
The NJDEP is relying on existing measures, which are already
implemented, or have been adopted with future implementation dates, to
promptly correct any violation of the NAAQS. The State has also
included a commitment to further evaluate additional measures, if
necessary and appropriate. See 78 FR 38648. The EPA proposes to find
that the contingency provisions in the PM<INF>2.5</INF> LMP for the
Northern New Jersey and Southern New Jersey 2006 PM<INF>2.5</INF>
maintenance areas meet the requirements of CAA section 175A(d). 42
U.S.C. 7505a(d).
IV. Proposed Action
The EPA is proposing to approve the second 10-year PM<INF>2.5</INF>
LMP for the Northern New Jersey and Southern New Jersey 2006 24-hour
PM<INF>2.5</INF> maintenance areas, submitted on July 6, 2023, and
supplemented on June 6, 2024. The EPA's review of the air quality data
for the maintenance areas indicates that the areas continue to show
attainment and are well below the level of the 2006 24-hour
PM<INF>2.5</INF> NAAQS and meet all the LMP's qualifying criteria, as
described in this action. If finalized, the EPA's approval of this LMP
will satisfy the CAA section 175A, 42 U.S.C. 7505a, requirements for
the second 10-year maintenance period. As discussed previously in
section II of this document, the EPA determined that the LMP is
adequate for transportation conformity purposes. The EPA made this
determination in a final action \23\ through a separate process
provided for in the transportation conformity regulations. See 40 CFR
93.118(f). The EPA is soliciting public comments only on the issues
discussed in this document. These comments will be considered before
taking final action. Interested parties may participate in the Federal
rulemaking procedure by submitting written comments to this proposed
rulemaking by following the instructions listed in the ADDRESSES
section of this Federal Register.
---------------------------------------------------------------------------
\23\ See footnote 6.
---------------------------------------------------------------------------
V. Statutory and Executive Order Reviews
Under the CAA section 110(k), 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, the EPA's role is to approve state
choices, provided that they meet the criteria of the CAA. Accordingly,
this proposed 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 proposed action:
<bullet> 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);
<bullet> Is not subject to Executive Order 14192 (90 FR 9065,
February 6, 2025) because SIP actions are exempt from review under
Executive Order 12866;
<bullet> Does not impose an information collection burden under the
provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);
<bullet> 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.);
<bullet> 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);
<bullet> Does not have federalism implications as specified in
Executive Order 13132 (64 FR 43255, August 10, 1999);
<bullet> Is not subject to Executive Order 13045 (62 FR 19885,
April 23, 1997) because it approves a state program;
<bullet> Is not a significant regulatory action subject to
Executive Order 13211 (66 FR 28355, May 22, 2001); and
<bullet> 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.
In addition, the SIP is not proposing to apply on any Indian
reservation land or in any other area where the 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 it 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, Particulate matter, Reporting
and recordkeeping requirements.
Authority: 42 U.S.C. 7401 et seq.
Michael Martucci,
Regional Administrator, Region 2.
[FR Doc. 2025-14470 Filed 7-30-25; 8:45 am]
BILLING CODE 6560-50-P
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This is legal information, not legal advice. Laws vary by jurisdiction and change frequently. Always verify current law with official sources and consult a licensed attorney in your jurisdiction for advice on your specific situation.