Approval and Promulgation of Implementation Plans; California State Implementation Plan Revision, Sacramento Metropolitan and South Coast Air Quality Management Districts and San Joaquin Valley Unified Air Pollution Control District

ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[CA 207-0136a FRL-6239-8]

Approval and Promulgation of Implementation Plans; California

State Implementation Plan Revision, Sacramento Metropolitan and South

Coast Air Quality Management Districts and San Joaquin Valley Unified

Air Pollution Control District

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: EPA is taking direct final action to approve revisions to the

California State Implementation Plan (SIP). This action is an

administrative change which revises the definitions in Sacramento

Metropolitan Air Quality Management (SMAQMD) Rule 101, San Joaquin

Valley Unified Air Pollution Control District (SJVUAPCD) Rule 1020, and

South Coast Air Quality Management District (SCAQMD) Rule 1302. The

intended effect of approving this action is to incorporate changes to

the definitions for clarity and consistency and to update the Exempt

Compound list in SMAQMD, SJVUAPCD, and SCAQMD rules to be consistent

with the revised federal and state VOC definitions.

DATES: This rule is effective on May 18, 1999 without further notice,

unless EPA receives adverse comments by April 19, 1999. If EPA receives

such comment, it will publish a timely withdrawal in the Federal

Register informing the public that this rule will not take effect.

ADDRESSES: Written comments must be submitted to Andrew Steckel at the

Region IX office listed below. Copies of the rule revisions and EPA's

evaluation report for each rule are available for public inspection at

EPA's Region IX office during normal business hours. Copies of the

submitted rule revisions are available for inspection at the following

locations:

Rulemaking Office (AIR-4), Air Division, U.S. Environmental Protection

Agency, Region IX, 75 Hawthorne Street, San Francisco, CA 94105

Environmental Protection Agency, Air Docket (6102), 401 ``M'' Street,

S.W., Washington, D.C. 20460

California Air Resources Board, Stationary Source Division, Rule

Evaluation Section, 2020 ``L'' Street, Sacramento, CA 95812

Sacramento Metropolitan Air Quality Management District, 8411 Jackson

Rd., Sacramento, CA 95826-3904

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San Joaquin Valley Unified Air Pollution Control District, 1990 E.

Gettysburg Ave., Fresno, CA 93726

South Coast Air Quality Management District, 21865 E. Copley Dr.,

Diamond Bar, CA 91765-4182

FOR FURTHER INFORMATION CONTACT: Cynthia G. Allen, Rulemaking Office,

AIR-4, Air Division, U.S. Environmental Protection Agency, Region IX,

75 Hawthorne Street, San Francisco, CA 94105, Telephone: (415) 744-

1189.

SUPPLEMENTARY INFORMATION:

I. Applicability

The rules being approved into the California SIP include: SMAQMD

Rule 101, General Provisions and Definitions; SJVUAPCD Rule 1020,

Definition; and South Coast Rule 1302, Definitions (New Source Review).

These rules were submitted by the California Air Resources Board to EPA

on October 27, 1998 (Sacramento); May 18, 1998 (San Joaquin); and March

10, 1998 (South Coast).

II. Background

On March 3, 1978, EPA promulgated a list of ozone nonattainment

areas under the provisions of the Clean Air Act, as amended in 1977

(1977 Act or pre-amended Act), that included SMAQMD, SJVUAPCD, and

SCAQMD. 43 FR 8964, 49 CFR 81.305. In response to Section 110(a) of the

Act and other requirements, the SMAQMD, SJVUAPCD, and SCAQMD submitted

many rules which EPA approved into the SIP.

On June 16, 1995 (60 FR 31633) EPA published a final rule excluding

acetone from the definition of VOC. On February 7, 1996 (61 FR 4588)

EPA published a final rule excluding perchloroethylene from the

definition of VOC. On October 8, 1996 (61 FR 52848) EPA published a

final rule excluding HFC 43-10mee and HCFC 225ca and cb from the

definition of VOC. On April 9, 1998 (63 FR 17331) EPA published a final

rule excluding methyl acetate from the definition of VOC. These

compounds were determined to have negligible photochemical reactivity

and thus, were added to the Agency's list of Exempt Compounds.

This document addresses EPA's direct-final action for SMAQMD Rule

101, General Provisions and Definitions; SJVUAPCD Rule 1020,

Definitions; and SCAQMD Rule 1302, Definitions (New Source Review).

These rules were adopted by SMAQMD on September 3, 1998; by SJVUAPCD on

December 18, 1997; and by SCAQMD on June 13, 1997. These rules were

submitted by the California Air Resources Board to EPA on October 27,

1998 (Sacramento); May 18, 1998 (San Joaquin); and March 10, 1998

(South Coast). These submitted rules were found to be complete on May

21, 1998 (South Coast); July 17, 1998 (Sacramento); and December 18,

1998 (San Joaquin), pursuant to EPA's completeness criteria that are

set forth in 40 CFR part 51 Appendix V 1 and is being

finalized for approval into the SIP.

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\1\ EPA adopted the completeness criteria on February 16, 1990

(55 FR 5830) and, pursuant to section 110(k)(1)(A) of the CAA,

revised the criteria on August 26, 1991 (56 FR 42216).

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The following are EPA's summary and final action for these rules:

III. EPA Evaluation and Action

In determining the approvability of a rule, EPA must evaluate the

rule for consistency with the requirements of the CAA and EPA

regulations, as found in section 110, and part D of the CAA and 40 CFR

part 51 (Requirements for Preparation, Adoption and Submittal of

Implementation Plans). The EPA interpretation of these requirements,

which forms the basis for this action, appears in various EPA policy

guidance documents.2

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\2\ Among other things, the pre-amendment guidance consists of

those portions of the proposed post-1987 ozone and carbon monoxide

policy that concern RACT, 52 FR 45044 (November 24, 1987); ``Issues

Relating to VOC Regulation Cutpoints, Deficiencies, and Deviations,

Clarification to Appendix D of November 24, 1987 Federal Register

Notice'' (Blue Book) (notice of availability was published in the

Federal Register on May 25, 1988).

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This administrative action is necessary to make the VOC definition

in the SMAQMD, SJVUAPCD, and SCAQMD rules consistent with federal and

state definitions of VOC. This action will result in more accurate

assessment of ozone formation potential, will remove unnecessary

control requirements and will assist States in avoiding exceedences of

the ozone health standard by focusing control efforts on compounds

which are actual ozone precursors.

SMAQMD Rule 101, General Provisions and Definitions, has been

revised to update the definition of ``Exempt Compounds''. In addition,

this amendment adds and/or revise the following definitions: Section

203, Emission Unit, Section 205, On-Site, and Section 209, Section.

SJVUAPCD Rule 1020, Definitions, is a new rule for the SJVUAPCD but

will replace the SIP rules for Fresno, Kern, Kings, Madera, Merced, San

Joaquin, Stanislaus and Tulare Counties. SJVUAPCD Rule, 1020 contains

general definitions for terms used or referenced in various district

rules. This new rule exempts ethane and acetone as volatile organic

compounds because of recent EPA and ARB action, revises the definition

of ``San Joaquin Valley Air Basin'' and ``Central Kern County Fields''

based on the recent California Air Resources Board realignment of air

basin boundaries, and delete the definition of ``Cyclic Well'' to

correct an inconsistency with a conflicting definition in Rule 4401

(Steam Enhanced Crude Oil Production Well Vents).

SCAQMD Rule 1302, Definitions (New Source Review), was submitted

with amended South Coast Rule 102, Definition of Terms.

Perchloroethylene is being added as a Group II Exempt Compound. The

other three compounds are to be added to the list of Group I Exempt

Compounds. The amendments will also allow the use of cyclic branched,

or linear, completely methylated siloxanes (VMS) and

parachlorobenzotrifluoride (PCBTF), currently listed as Group II Exempt

Compounds, and perchloroethylene in operations regulated pursuant to

Rules 1106.1, 1151, and 1171. In order to have a consistent VOC

definition, the VOC definition in Rule 1302 is being removed and now

refers to Rule 102 which was approved on (February 23, 1999, Federal

Register pending). Thus, EPA is approving amended Rule 1302 into the

SIP.

EPA is publishing this rule without prior proposal because the

Agency views this as a noncontroversial amendment and anticipates no

adverse comments. However, in the proposed rules section of this

Federal Register publication, EPA is publishing a separate document

that will serve as the proposal to approve the SIP revision should

adverse comments be filed. This rule will be effective May 18, 1999

without further notice unless the Agency receives adverse comments by

April 19, 1999.

If the EPA receives such comments, then EPA will publish a timely

withdrawal in the Federal Register informing the public that the rule

will not take effect. All public comments received will then be

addressed in a subsequent final rule based on the proposed rule. The

EPA will not institute a second comment period on this rule. Any

parties interested in commenting on this rule should do so at this

time. If no such comments are received, the public is advised that this

rule will be effective on May 18, 1999 and no further action will be

taken on the proposed rule.

[[Page 13516]]

IV. Administrative Requirements

A. Executive Order 12866

The Office of Management and Budget (OMB) has exempted this

regulatory action from Executive Order (E.O.) 12866, Regulatory

Planning and Review.

B. Executive Order 12875

Under Executive Order 12875, Enhancing the Intergovernmental

Partnership, EPA may not issue a regulation that is not required by

statute and that creates a mandate upon a State, local or tribal

government, unless the Federal government provides the funds necessary

to pay the direct compliance costs incurred by those governments, or

EPA consults with those governments. If EPA complies by consulting,

Executive Order 12875 requires EPA to provide to the Office of

Management and Budget a description of the extent of EPA's prior

consultation with representatives of affected State, local and tribal

governments, the nature of their concerns, copies of any written

communications from the governments, and a statement supporting the

need to issue the regulation. In addition, Executive Order 12875

requires EPA to develop an effective process permitting elected

officials and other representatives of State, local and tribal

governments ``to provide meaningful and timely input in the development

of regulatory proposals containing significant unfunded mandates.''

Today's rule does not create a mandate on State, local or tribal

governments. The rule does not impose any enforceable duties on these

entities. Accordingly, the requirements of section 1(a) of E.O. 12875

do not apply to this rule.

C. Executive Order 13045

Protection of Children from Environmental Health Risks and Safety

Risks (62 FR 19885, April 23, 1997), applies to any rule that: (1) is

determined to be ``economically significant'' as defined under E.O.

12866, and (2) concerns an environmental health or safety risk that EPA

has reason to believe may have a disproportionate effect on children.

If the regulatory action meets both criteria, the Agency must evaluate

the environmental health or safety effects of the planned rule on

children, and explain why the planned regulation is preferable to other

potentially effective and reasonably feasible alternatives considered

by the Agency. This rule is not subject to E.O. 13045 because it is

does not involve decisions intended to mitigate environmental health or

safety risks.

D. Executive Order 13084

Under Executive Order 13084, Consultation and Coordination with

Indian Tribal Governments, EPA may not issue a regulation that is not

required by statute, that significantly or uniquely affects the

communities of Indian tribal governments, and that imposes substantial

direct compliance costs on those communities, unless the Federal

government provides the funds necessary to pay the direct compliance

costs incurred by the tribal governments, or EPA consults with those

governments. If EPA complies by consulting, Executive Order 13084

requires EPA to provide to the Office of Management and Budget, in a

separately identified section of the preamble to the rule, a

description of the extent of EPA's prior consultation with

representatives of affected tribal governments, a summary of the nature

of their concerns, and a statement supporting the need to issue the

regulation. In addition, Executive Order 13084 requires EPA to develop

an effective process permitting elected officials and other

representatives of Indian tribal governments ``to provide meaningful

and timely input in the development of regulatory policies on matters

that significantly or uniquely affect their communities.'' Today's rule

does not significantly or uniquely affect the communities of Indian

tribal governments. Accordingly, the requirements of section 3(b) of

E.O. 13084 do not apply to this rule.

E. Regulatory Flexibility Act

The Regulatory Flexibility Act (RFA) generally requires an agency

to conduct a regulatory flexibility analysis of any rule subject to

notice and comment rulemaking requirements unless the agency certifies

that the rule will not have a significant economic impact on a

substantial number of small entities. Small entities include small

businesses, small not-for-profit enterprises, and small governmental

jurisdictions. This final rule will not have a significant impact on a

substantial number of small entities because SIP approvals under

section 110 and subchapter I, part D of the Clean Air Act do not create

any new requirements but simply approve requirements that the State is

already imposing. Therefore, because the Federal SIP approval does not

create any new requirements, I certify that this action will not have a

significant economic impact on a substantial number of small entities.

Moreover, due to the nature of the Federal-State relationship under the

Clean Air Act, preparation of flexibility analysis would constitute

Federal inquiry into the economic reasonableness of state action. The

Clean Air Act forbids EPA to base its actions concerning SIPs on such

grounds. Union Electric Co., v. U.S. EPA, 427 U.S. 246, 255-66 (1976);

42 U.S.C. 7410(a)(2).

F. Unfunded Mandates

Under Section 202 of the Unfunded Mandates Reform Act of 1995

(``Unfunded Mandates Act''), signed into law on March 22, 1995, EPA

must prepare a budgetary impact statement to accompany any proposed or

final rule that includes a Federal mandate that may result in estimated

annual costs to State, local, or tribal governments in the aggregate;

or to private sector, of $100 million or more. Under Section 205, EPA

must select the most cost-effective and least burdensome alternative

that achieves the objectives of the rule and is consistent with

statutory requirements. Section 203 requires EPA to establish a plan

for informing and advising any small governments that may be

significantly or uniquely impacted by the rule.

EPA has determined that the approval action promulgated does not

include a Federal mandate that may result in estimated annual costs of

$100 million or more to either State, local, or tribal governments in

the aggregate, or to the private sector. This Federal action approves

pre-existing requirements under State or local law, and imposes no new

requirements. Accordingly, no additional costs to State, local, or

tribal governments, or to the private sector, result from this action.

G. Submission to Congress and the Comptroller General

The Congressional Review Act, 5 U.S.C. 801 et seq., as added by the

Small Business Regulatory Enforcement Fairness Act of 1996, generally

provides that before a rule may take effect, the agency promulgating

the rule must submit a rule report, which includes a copy of the rule,

to each House of the Congress and to the Comptroller General of the

United States. EPA will submit a report containing this rule and other

required information to the U.S. Senate, the U.S. House of

Representatives, and the Comptroller General of the United States prior

to publication of the rule in the Federal Register. This rule is not a

``major'' rule as defined by 5 U.S.C. 804(2).

H. Petitions for Judicial Review

Under section 307(b)(1) of the Clean Air Act, petitions for

judicial review of this action must be filed in the United States Court

of Appeals for the

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appropriate circuit by May 18, 1999. Filing a petition for

reconsideration by the Administrator of this final rule does not affect

the finality of this rule for the purposes of judicial review nor does

it extend the time within which a petition for judicial review may be

filed, and shall not postpone the effectiveness of such rule or action.

This action may not be challenged later in proceedings to enforce its

requirements. (See section 307(b)(2).)

List of Subjects in 40 CFR Part 52

Environmental protection, Air pollution control, Hydrocarbons,

Incorporation by reference, Intergovernmental relations, Ozone,

Reporting and recordkeeping requirements, Volatile organic compounds.

Note: Incorporation by reference of the State Implementation

Plan for the State of California was approved by the Director of the

Federal Register on July 1, 1982.

Dated: March 5, 1999.

Laura Yoshii,

Deputy Regional Administrator, Region IX.

Part 52, chapter I, title 40 of the Code of Federal Regulations is

amended as follows:

PART 52--[AMENDED]

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

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

Subpart F--California

2. Section 52.220 is amended by adding paragraphs

(c)(254)(i)(D)(3), (255)(i)(C), and (260)(i)(A) to read as follows:

Sec. 52.220 Identification of plan.

* * * * *

(c) * * *

(254) * * *

(i) * * *

(D) South Coast Air Quality Management District.

(3) Rule 1302, amended December 7, 1995.

* * * * *

(255) * * *

(i) * * *

(C) San Joaquin Valley Unified Air Pollution Control District.

(1) Rule 1020, amended December 18, 1997.

* * * * *

(260) New and amended regulations for the following APCDs were

submitted on October 27, 1998, by the Governor's designee.

(i) Incorporation by reference.

(A) Sacramento Metropolitan Air Quality Management District.

(1) Rule 101, amended on September 3, 1998.

* * * * *

[FR Doc. 99-6650 Filed 3-18-99; 8:45 am]

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