Rule2025-20352
Approval and Promulgation of Implementation Plans; State of Utah; Salt Lake City and Provo, Utah PM2.5 Redesignations to Attainment and Utah State Implementation Plan Revisions
Primary source
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Published
November 19, 2025
Effective
December 19, 2025
Issuing agencies
Environmental Protection Agency
Abstract
The Environmental Protection Agency (EPA) is approving the redesignation of the Salt Lake City, Utah and Provo, Utah nonattainment areas (NAAs) to attainment for the 2006 24-hour fine particulate matter with an aerodynamic diameter less than or equal to a nominal 2.5 microns (PM<INF>2.5</INF>) National Ambient Air Quality Standard (NAAQS), and also approving multiple related State Implementation Plan (SIP) submissions. We are approving SIP revisions submitted by the State of Utah on January 19, 2017; February 4 and 15, 2019; January 13, 2020; December 17, 2020; and July 15, 2025. These SIP submissions include revisions to Utah Administrative Code (UAC) section R307-110; revisions to Utah state law SIP sections IX.H.11, 12, and 13; best available control measures/best available control technologies (BACM/ BACT) PM<INF>2.5</INF> determinations for Salt Lake City and Provo; maintenance plans for the Salt Lake City and Provo areas for PM<INF>2.5</INF> including motor vehicle emissions budgets used for transportation conformity purposes; and the request for redesignation under the 2006 24-hour PM<INF>2.5</INF> standard. The EPA is also finding the budgets adequate for transportation conformity purposes. The EPA is taking this action pursuant to the Clean Air Act (CAA or the Act).
Full Text
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<title>Federal Register, Volume 90 Issue 221 (Wednesday, November 19, 2025)</title>
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[Federal Register Volume 90, Number 221 (Wednesday, November 19, 2025)]
[Rules and Regulations]
[Pages 51999-52004]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2025-20352]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52 and 81
[EPA-R08-OAR-2020-0098; FRL-12594-02-R8]
Approval and Promulgation of Implementation Plans; State of Utah;
Salt Lake City and Provo, Utah PM2.5 Redesignations to Attainment and
Utah State Implementation Plan Revisions
AGENCY: Environmental Protection Agency (EPA).
ACTION: Final rule.
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SUMMARY: The Environmental Protection Agency (EPA) is approving the
redesignation of the Salt Lake City, Utah and Provo, Utah nonattainment
areas (NAAs) to attainment for the 2006 24-hour fine particulate matter
with an aerodynamic diameter less than or equal to a nominal 2.5
microns (PM<INF>2.5</INF>) National Ambient Air Quality Standard
(NAAQS), and also approving multiple related State Implementation Plan
(SIP) submissions. We are approving SIP revisions submitted by the
State of Utah on January 19, 2017; February 4 and 15, 2019; January 13,
2020; December 17, 2020; and July 15, 2025. These SIP submissions
include revisions to Utah Administrative Code (UAC) section R307-110;
revisions to Utah state law SIP sections IX.H.11, 12, and 13; best
available control measures/best available control technologies (BACM/
BACT) PM<INF>2.5</INF> determinations for Salt Lake City and Provo;
maintenance plans for the Salt Lake City and Provo areas for
PM<INF>2.5</INF> including motor vehicle emissions budgets used for
transportation conformity purposes; and the request for redesignation
under the 2006 24-hour PM<INF>2.5</INF> standard. The EPA is also
finding the budgets adequate for transportation conformity purposes.
The EPA is taking this action pursuant to the Clean Air Act (CAA or the
Act).
DATES: This rule is effective on December 19, 2025.
ADDRESSES: The EPA has established a docket for this action under
Docket ID No. EPA-R08-OAR-2020-0098. All documents in the docket are
listed on the <a href="https://www.regulations.gov">https://www.regulations.gov</a> website. Although listed in
the index, some information is not publicly available, e.g.,
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 through <a href="https://www.regulations.gov">https://www.regulations.gov</a>, or please
contact the person identified in the FOR FURTHER INFORMATION CONTACT
section for additional availability information.
FOR FURTHER INFORMATION CONTACT: Crystal Ostigaard, Air and Radiation
Division, EPA, Region 8, Mailcode 8ARD-IO, 1595 Wynkoop Street, Denver,
Colorado 80202-1129, telephone number: (303) 312-6602,
[[Page 52000]]
email address: <a href="/cdn-cgi/l/email-protection#c1aeb2b5a8a6a0a0b3a5efa2b3b8b2b5a0ad81a4b1a0efa6aeb7"><span class="__cf_email__" data-cfemail="056a76716c62646477612b66777c76716469456075642b626a73">[email protected]</span></a>.
SUPPLEMENTARY INFORMATION: Throughout this document ``we,'' ``us,'' and
``our'' means the EPA.
I. Background
The background for this action is discussed in detail in our
November 6, 2020 (85 FR 71023) \1\ and July 16, 2025 (90 FR 31901)
proposed actions. In the November 6, 2020, document we proposed to
redesignate the Salt Lake City and Provo 2006 24-hour PM<INF>2.5</INF>
NAAs, and to approve multiple related SIP submissions. We proposed
approval of the State's January 13, 2020 submittal to revise the SIP
based upon revisions to R307-110-10, and the Provo and Salt Lake City
2006 24-hour PM<INF>2.5</INF> maintenance plans and redesignation
requests. We also proposed to approve both maintenance plans' 2035
motor vehicle emission budgets (budgets) and the levels of nitrogen
oxide (NO<INF>X</INF>) and volatile organic compounds (VOC) to direct
PM<INF>2.5</INF> budgets trading mechanisms in each maintenance plan.
Additionally, the EPA notified the public on October 7, 2025, through
EPA's website that we proposed to find the 2035 budgets adequate for
transportation conformity purposes.\2\ We proposed approval of these
submissions because the Utah Division of Air Quality (UDAQ) adequately
addressed all of the requirements of the Act for the SIP revisions and
redesignations to attainment applicable to the Provo and Salt Lake City
2006 24-hour PM<INF>2.5</INF> NAAs. We used the 2022-2024 ambient air
quality data from the Provo and Salt Lake City NAAs as the basis for
our final decision. Upon the effective date of this final action, the
designation status of the Provo and Salt Lake City areas under 40 CFR
part 81 will be revised to attainment.
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\1\ On April 6, 2021 (86 FR 17762) the comment period was
reopened due to an administrative error where two documents were
inadvertently left out of the record.
\2\ Adequacy Review of State Implementation Plan (SIP)
Submissions for Conformity, available 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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Additionally, we proposed to approve SIP revisions submitted on
January 19, 2017 (Utah state SIP section IX.H.13) and February 15, 2019
(portions of Utah state SIP section IX.H.11 and 12). We also proposed
to approve, through parallel processing, the removal of the startup/
shutdown emission limits for the Kennecott Power Plant found in Utah
state SIP section IX.H.12.i.i.C, which were formally submitted on
October 9, 2020.
The EPA proposed to approve the area sources, major stationary
sources, on-road mobile sources, and non-road mobile sources BACM/BACT
analyses for the Provo and Salt Lake City 2006 24-hour PM<INF>2.5</INF>
NAAs that were submitted on February 4, 2019 and February 15, 2019.
Consistent with the EPA's procedures for parallel processing
established under section 2.3 of appendix V to 40 CFR part 51, our July
16, 2025 (90 FR 31901) proposed approval relied upon our evaluation of
the public draft version of the revisions to Utah state SIP sections
IX.H.11 and 12, R307-110-17, and the revised BACM/BACT analyses for the
five sources \3\ that were adopted by the Utah Air Quality Board on May
7, 2025, and submitted to the EPA on May 20, 2025. UDAQ provided the
final submittal to the EPA on July 15, 2025. We have reviewed this
submittal and have determined that it does not differ from the public
draft version submitted to the EPA on May 20, 2025, that was evaluated
for our proposed approval.
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\3\ Big West, Chevron, Hexcel, HF Sinclair, and Marathon.
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II. Response to Comments
During the public notices and comment periods, we received multiple
comments that were for and against both proposed actions. The full text
of comments received are included in the publicly posted docket
associated with this action at <a href="https://www.regulations.gov">https://www.regulations.gov</a>. Our
Response to Comments (RTC) document, which is also included in the
docket, provides full, detailed responses to all significant comments
received and further explains the basis for our final action.
III. Final Action
We are approving the redesignation of the Salt Lake City and Provo
2006 24-hour PM<INF>2.5</INF> NAAs, and the related SIP submissions
because UDAQ has adequately addressed all of the requirements of the
Act for the SIP revisions and the redesignation to attainment
applicable to the Provo and Salt Lake City 2006 24-hour
PM<INF>2.5</INF> NAAs.\4\
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\4\ See design values within AQS reports found in the docket.
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We are approving the Governor of Utah's January 13, 2020 submittal,
containing revisions to R307-110-10, and the Provo and Salt Lake City
2006 24-hour PM<INF>2.5</INF> maintenance plans and redesignation
requests. We are approving both maintenance plans' 2035 budgets. The
final 2035 budgets for the Provo NAA are 1.5 tons per day (tpd) direct
PM<INF>2.5</INF>, 6.5 tpd NO<INF>X</INF>, and 7.0 tpd VOCs and the
final 2035 budgets for Salt Lake City NAA are 1.38 tpd direct
PM<INF>2.5</INF>, 21.63 tpd NO<INF>X</INF>, and 20.57 tpd VOCs. We also
find the budgets adequate, as they meet the adequacy criteria found in
the transportation conformity regulation at 40 CFR 93.118(e)(4). The
transportation conformity regulation at 40 CFR 93.118(f) sets forth the
process by which the EPA reviews adequacy of transportation budgets. In
addition, we are approving the NO<INF>X</INF> and VOC levels to direct
PM<INF>2.5</INF> budgets trading mechanisms in each maintenance plan,
as allowed for by the transportation conformity regulation at 40 CFR
93.124(b). Please see the November 6, 2020 proposed rule at 85 FR 71023
for additional information about the trading mechanism and its
application in transportation conformity determinations in these areas.
We are using 2022-2024 ambient air quality data from the Provo and Salt
Lake City NAAs as the basis for our decision. Upon the effective date
of this final action, the designation status of the Provo and Salt Lake
City areas under 40 CFR part 81 will be revised to attainment.
Additionally, we are approving SIP revisions submitted on January
19, 2017 (Utah state SIP section IX.H.13), and February 15, 2019
(portions of Utah state SIP section IX.H.11 and 12). We are approving
the removal of the startup/shutdown emission limits for the Kennecott
Power Plant found in Utah state SIP section IX.H.12.i.i.C, which was
formally submitted by the State of Utah on December 14, 2020.
The EPA is approving for incorporation into the SIP the area
sources, major stationary sources, on-road mobile sources, and non-road
mobile sources BACM/BACT analyses for the Provo and Salt Lake City 2006
24-hour PM<INF>2.5</INF> NAAs that were submitted on February 4, 2019
and February 15, 2019.
Additionally, we are approving Utah's July 15, 2020 submission to
revise the federally approved Utah state SIP based upon revisions to
the Utah state SIP sections IX.H.11 and 12, and the accompanying R307-
110-17. Finally, the EPA is approving for incorporation into the
federally approved Utah state SIP the five major stationary sources
BACM/BACT analyses/updates for the Salt Lake City 2006 24-hour
PM<INF>2.5</INF> NAA that were submitted on July 15, 2025.
IV. Incorporation by Reference
In this document, the EPA is finalizing regulatory text that
includes incorporation by reference. In accordance with requirements of
1 CFR
[[Page 52001]]
51.5, the EPA is finalizing the incorporation by reference of: R307-
110-10; R307-110-17; Utah state SIP section IX.H.11, 12, and 13; Utah
state SIP section IX.A.27 (Provo 2006 24-hour PM<INF>2.5</INF>
Maintenance Plan); Utah state SIP section IX.A.36 (Salt Lake City 2006
24-hour PM<INF>2.5</INF> Maintenance Plan); and the redesignation
requests for the Provo and Salt Lake City 2006 24-hour PM<INF>2.5</INF>
NAAs to attainment. The EPA has made, and will continue to make, these
materials generally available through <a href="https://www.regulations.gov">https://www.regulations.gov</a> and
at the EPA Region 8 Office (please contact the person identified in the
FOR FURTHER INFORMATION CONTACT section of this preamble for more
information). Therefore, these materials have been approved by the EPA
for inclusion in the SIP, have been incorporated by reference by the
EPA into that plan, are fully federally enforceable under sections 110
and 113 of the CAA as of the effective date of the final rulemaking of
the EPA's approval, and will be incorporated by reference in the next
update to the SIP compilation.\5\
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\5\ 62 FR 27968 (May 22, 1997).
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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
action merely approves state law as meeting Federal requirements and
does not impose additional requirements beyond those imposed by state
law. For that reason, this action:
<bullet> Is not a significant regulatory action subject to review
by the Office of Management and Budget under Executive Order 12866 (58
FR 51735, October 4, 1993);
<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 CAA.
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).
This action is subject to the Congressional Review Act (CRA), and
the EPA will submit a rule report to each House of the Congress and to
the Comptroller General of the United States. This action is not a
``major rule'' as defined by 5 U.S.C. 804(2).
Under section 307(b)(1) of the CAA, petitions for judicial review
of this action must be filed in the United States Court of Appeals for
the appropriate circuit by January 20, 2026. Filing a petition for
reconsideration by the Administrator of this final rule does not affect
the finality of this action for the purposes of judicial review nor
does it extend the time within which a petition for judicial review may
be filed, and shall not postpone the effectiveness of such rule or
action. This action may not be challenged later in proceedings to
enforce its requirements (see section 307(b)(2)).
List of Subjects
40 CFR Part 52
Environmental protection, Air pollution control, Carbon monoxide,
Greenhouse gases, Incorporation by reference, Intergovernmental
relations, Lead, Nitrogen dioxide, Ozone, Particulate matter, Reporting
and recordkeeping requirements, Sulfur oxides, Volatile organic
compounds.
40 CFR Part 81
Environmental protection, Air pollution control, National parks,
and Wilderness areas.
Authority: 42 U.S.C. 7401 et seq.
Dated: November 10, 2025.
Cyrus M. Western,
Regional Administrator, Region 8.
For the reasons stated in the preamble, the Environmental
Protection Agency is amending title 40 CFR parts 52 and 81 as follows:
PART 52--APPROVAL AND PROMULGATION OF IMPLEMENTATION PLANS
0
1. The authority citation for part 52 continues to read as follows:
Authority: 42 U.S.C. 7401 et seq.
Subpart TT--Utah
0
2. In Sec. 52.2320:
0
a. The table in paragraph (c) is amended by revising the entries
``R307-110-10'' and ``R307-110-17''.
0
b. The table in paragraph (e) is amended by:
0
i. Under the heading ``IX. Control Measures for Area and Point
Sources'' adding the entries ``H.11. General Requirements: Control
Measures for Area and Point Sources, Emission Limits and Operating
Practices, PM<INF>2.5</INF>'', ``H.12. Source-Specific Emission
Limitations in Salt Lake City--UT PM<INF>2.5</INF> Nonattainment Area''
in numerical order, and ``H.13 Source-Specific Emission Limitations in
Provo--UT PM<INF>2.5</INF> Nonattainment Area'' after the entry
``Section IX.H.4. Interim Emission Limits and Operating Practices'' and
before the entry ``Section IX.H.21. General Requirements: Control
Measures for Area and Point Sources, Emission Limits and Operating
Practices, Regional Haze Requirements''.
0
ii. Under the heading ``Maintenance Plans'' adding the entries
``PM<INF>2.5</INF> Maintenance Provisions for the Provo, UT
Nonattainment Area'' and ``PM<INF>2.5</INF> Maintenance Provisions for
the Salt Lake City, UT Nonattainment Area'' at the end of the section.
The revisions and additions read as follows:
Sec. 52.2320 Identification of plan.
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(c) * * *
[[Page 52002]]
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State
Rule No. Rule title effective Final rule citation, Comments
date date
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* * * * * * *
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R307-110. General Requirements: State Implementation Plan
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* * * * * * *
R307-110-10................ Section IX, Control 12/5/2019 90 FR [insert Federal
Measures for Area and Register page where
Point Sources, Part the document begins],
A, Fine Particulate 11/19/25.
Matter.
* * * * * * *
R307-110-17................ Section IX, Control 7/2/2025 90 FR [insert Federal
Measures for Area and Register page where
Point Sources, Part the document begins],
H, Emission Limits. 11/19/25.
* * * * * * *
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(e) * * *
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State
Rule title effective Final rule citation, date Comments
date
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* * * * * * *
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IX. Control Measures for Area and Point Sources
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* * * * * * *
H.11. General Requirements: Control 7/2/2025 90 FR [insert Federal
Measures for Area and Point Sources, Register page where the
Emission Limits and Operating document begins], 11/19/25.
Practices, PM2.5.
H.12. Source-Specific Emission 7/2/2025 90 FR [insert Federal
Limitations in Salt Lake City--UT PM2.5 Register page where the
Nonattainment Area. document begins], 11/19/25.
H.13 Source-Specific Emission 1/2/2019 90 FR [insert Federal
Limitations in Provo--UT PM2.5 Register page where the
Nonattainment Area. document begins], 11/19/25.
* * * * * * *
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Maintenance Plans
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* * * * * * *
PM2.5 Maintenance Provisions for the 12/5/2019 90 FR [insert Federal
Provo, UT Nonattainment Area. Register page where the
document begins], 11/19/25.
PM2.5 Maintenance Provisions for the 12/5/2019 90 FR [insert Federal
Salt Lake City, UT Nonattainment Area. Register page where the
document begins], 11/19/25.
* * * * * * *
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PART 81--DESIGNATION OF AREAS FOR AIR QUALITY PLANNING PURPOSES
0
3. The authority citation for part 81 continues to read as follows:
Authority: 42 U.S.C. 7401, et seq.
Subpart C--Section 107 Attainment Status Designations
0
4. In Sec. 81.345, the table titled ``Utah--2006 24-Hour
PM<INF>2.5</INF> NAAQS [Primary and Secondary]'' is amended by revising
the entries ``Provo, UT:'' and ``Salt Lake City, UT:'' to read as
follows:
Sec. 81.345 Utah.
* * * * *
[[Page 52003]]
Utah--2006 24-Hour PM2.5 NAAQS
[Primary and secondary]
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Designation \a\ Classification
Designated area -------------------------------------------------------------------------------
Date \1\ Type Date \2\ Type
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* * * * * * *
Provo, UT:
Utah County (part).......... 12/19/25 Attainment............
The area of Utah County
that lies west of the
Wasatch Mountain Range
(and this includes the
Cities of Provo and
Orem) with an eastern
boundary for Utah
County to be defined as
the following
Townships: Township 3
South Range 1 East;
Township 4 South Range
2 East; Township 5
South Range 3 East;
Township 6 South Range
3 East; Township 7
South Range 3 East;
Township 8 South Range
3 East; Township 9
South Range 3 East;
Township 10 South Range
2 East.
Salt Lake City, UT:
Box Elder County (part)..... 12/19/25 Attainment............
The following Townships
or portions thereof as
noted (including
Brigham City): Township
7 North Range 2 West;
Township 8 North Range
2 West; Township 9
North Range 2 West;
Township 10 North Range
2 West; Township 11
North Range 2 West;
Township 12 North Range
2 West; Township 13
North Range 2 West;
Township 9 North Range
3 West; Township 10
North Range 3 West;
Township 11 North Range
3 West; Township 12
North Range 3 West;
Township 13 North Range
3 West; Township 13
North Range 4 West;
Township 12 North Range
4 West; Township 11
North Range 4 West;
Township 10 North Range
4 West; Township 9
North Range 4 West;
Township 13 North Range
5 West; Township 12
North Range 5 West;
Township 11 North Range
5 West; Township 10
North Range 5 West;
Township 9 North Range
5 West; Township 13
North Range 6 West;
Township 12 North Range
6 West; Township 11
North Range 6 West;
Township 10 North Range
6 West; Township 9
North Range 6 West;
Township 7 North Range
1 West (portion located
in Box Elder County);
Township 8 North Range
1 West (portion located
in Box Elder County);
Township 9 North Range
1 West (portion located
in Box Elder County).
Davis County................ 12/19/25 Attainment............
Salt Lake County............ 12/19/25 Attainment............
Tooele County (part)........ 12/19/25 Attainment............
The following Townships
or portions thereof as
noted (including Tooele
City): Township 1 South
Range 3 West; Township
2 South Range 3 West;
Township 3 South Range
3 West; Township 3
South Range 4 West;
Township 2 South Range
4 West; Township 2
South Range 5 West;
Township 3 South Range
5 West; Township 3
South Range 6 West;
Township 2 South Range
6 West; Township 1
South Range 6 West;
Township 1 South Range
5 West; Township 1
South Range 4 West;
Township 1 South Range
7 West; Township 2
South Range 7 West;
Township 3 South Range
7 West; all Sections
within Township 4 South
Range 7 West except for
Sections 29, 30, 31 and
32; Township 4 South
Range 6 West; Township
4 South Range 5 West;
Township 4 South Range
4 West; Township 4
South Range 3 West.
Weber County (part)......... 12/19/25 Attainment............
The area of Weber County
that lies west of the
Wasatch Mountain Range
with an eastern
boundary for Weber
County to be defined as
the following Townships
(or portion thereof)
extending to the
western boundary of
Weber County: Township
5 North Range 1 West;
Township 6 North Range
1 West; all Sections
within Township 7 North
Range 1 West located
within Weber County
except for Sections 1,
2, 3, 4, 11, 12, 13 and
24; Township 7 North
Range 2 West (portion
located in Weber
County).
* * * * * * *
----------------------------------------------------------------------------------------------------------------
\a\ Includes Indian Country located in each county or area, except as otherwise specified.
\1\ This date is 30 days after November 13, 2009, unless otherwise noted.
\2\ This date is July 2, 2034, unless otherwise noted.
[[Page 52004]]
* * * * *
[FR Doc. 2025-20352 Filed 11-18-25; 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.