[Federal Register Volume 59, Number 166 (Monday, August 29, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-21169]


[[Page Unknown]]

[Federal Register: August 29, 1994]


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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52

[CA 95-1-6591a; FRL-5055-7]

 

Approval and Promulgation of Implementation Plans; California 
State Implementation Plan Revision, Bay Area Air Quality Management 
District

agency: Environmental Protection Agency (EPA).

action: Direct final rule.

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summary: EPA is taking direct final action on revisions to the 
California State Implementation Plan. The revisions concern Rule 8-8, 
``Wastewater (Oil-Water) Separators'' from the Bay Area Air Quality 
Management District (BAAQMD). This approval action will incorporate 
this rule into the federally approved SIP. The intended effect of 
approving this rule is to regulate emissions of volatile organic 
compounds (VOCs) in accordance with the requirements of the Clean Air 
Act, as amended in 1990 (CAA or the Act). In addition, the final action 
on this rule serves as a final determination that the deficiency in 
this rule has been corrected and that on the effective date of this 
action, any sanction or Federal Implementation Plan (FIP) clock is 
stopped. The revised rule controls VOC emissions from separation of 
oil-water mixtures. Thus, EPA is finalizing the approval of this 
revision into the California SIP under provisions of the CAA regarding 
EPA action on SIP submittals, SIPs for national primary and secondary 
ambient air quality standards and plan requirements for nonattainment 
areas.

dates: This final rule is effective on October 28, 1994 unless adverse 
or critical comments are received by September 28, 1994. If the 
effective date is delayed, a timely notice will be published in the 
Federal Register.

addresses: Copies of the rule revision and EPA's evaluation report for 
the rule are available for public inspection at EPA's Region IX office 
during normal business hours. Copies of the submitted rule revision are 
available for inspection at the following locations:

Rulemaking Section (A-5-3), Air and Toxics Division, U.S. Environmental 
Protection Agency, Region IX, 75 Hawthorne Street, San Francisco, CA 
94105-3901.
Environmental Protection Agency, Air Docket 6102, 401 ``M'' Street, 
SW., Washington, DC 20460.
California Air Resources Board, Stationary Source Division, Rule 
Evaluation Section, 2020 ``L'' Street, Sacramento, CA 92123-1095.
Bay Area Air Quality Management District, 939 Ellis Street, San 
Francisco, CA 94109.

for further information contact: Erik H. Beck, Rulemaking Section (A-5-
3), Air and Toxics Division, U.S. Environmental Protection Agency, 
Region IX, 75 Hawthorne Street, San Francisco, CA 94105, Telephone: 
(415) 744-1190. Internet: [email protected].

SUPPLEMENTARY INFORMATION:

Applicability

    The rule being approved into the California SIP is BAAQMD Rule 8-8, 
``Wastewater (Oil-Water) Separators''. This rule was submitted by the 
California Air Resources Board to EPA on July 13, 1994.

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 the San Francisco Bay 
area. 43 FR 8964, 40 CFR 81.305. Because this area was unable to meet 
the statutory attainment date of December 31, 1982, California 
requested under section 172(a)(2), and EPA approved, an extension of 
the attainment date to December 31, 1987 (40 CFR 52.222). On May 26, 
1988, EPA notified the Governor of California, pursuant to section 
110(a)(2)(H) of the 1977 Act, that the BAAQMD's portion of the 
California SIP was inadequate to attain and maintain the ozone standard 
and requested that deficiencies in the existing SIP be corrected (EPA's 
SIP-Call). On November 15, 1990, the Clean Air Act Amendments of 1990 
were enacted. Public Law 101-549, 104 Stat. 2399, codified at 42 U.S.C. 
7401-7671q. In amended section 182(a)(2)(A) of the CAA, Congress 
statutorily adopted the requirement that nonattainment areas fix their 
deficient reasonably available control technology (RACT) rules for 
ozone and established a deadline of May 15, 1991 for states to submit 
corrections of those deficiencies.
    Section 182(a)(2)(A) applies to areas designated as nonattainment 
prior to enactment of the amendments and classified as marginal or 
above as of the date of enactment. It requires such areas to adopt and 
correct RACT rules pursuant to pre-amended section 172(b) as 
interpreted in pre-amendment guidance.\1\ EPA's SIP-Call used that 
guidance to indicate the necessary corrections for specific 
nonattainment areas. The San Francisco Bay Area is classified as 
moderate;\2\ therefore, this area was subject to the RACT fix-up 
requirement and the May 15, 1991 deadline.
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    \1\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); and the existing control 
technique guidelines (CTGs).
    \2\The San Francisco Bay Area retained its designation of 
nonattainment and was classified by operation of law pursuant to 
sections 107(d) and 181(a) upon the date of enactment of the CAA. 
See 55 FR 56694 (November 6, 1991).
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    The State of California submitted many revised RACT rules for 
incorporation into its SIP on July 13, 1994, including the rule being 
acted on in this notice. This notice addresses EPA's direct-final 
action for BAAQMD Rule 8-8, ``Wastewater (Oil-Water) Separators''. 
BAAQMD adopted Rule 8-8 on June 15, 1994. This submitted rule was found 
to be complete on July 22, 1994 pursuant to EPA's completeness criteria 
that are set forth in 40 CFR part 51 Appendix V\3\ and is being 
finalized for approval into the SIP.
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    \3\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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    This rule controls VOC emissions from equipment which separates oil 
from aqueous effluent streams. VOCs contribute to the production of 
ground level ozone and smog. This rule was originally adopted as part 
of BAAQMD's effort to achieve the National Ambient Air Quality Standard 
(NAAQS) for ozone and in response to EPA's SIP-Call and the section 
182(a)(2)(A) CAA requirement. The following is EPA's evaluation and 
final action for this rule.

EPA Evaluation and Action

    In determining the approvability of a VOC 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 today's action, appears in the various EPA 
policy guidance documents listed in footnote 1. Among those provisions 
is the requirement that a VOC rule must, at a minimum, provide for the 
implementation of RACT for stationary sources of VOC emissions. This 
requirement was carried forth from the pre-amended Act.
    For the purpose of assisting state and local agencies in developing 
RACT rules, EPA prepared a series of Control Technique Guideline (CTG) 
documents. The CTGs are based on the underlying requirements of the Act 
and specify the presumptive norms for what is RACT for specific source 
categories. Under the CAA, Congress ratified EPA's use of these 
documents, as well as other Agency policy, for requiring States to 
``fix-up'' their RACT rules. See section 182(a)(2)(A). The CTG 
applicable to this rule is entitled ``Petroleum Refineries--Control of 
Refinery Vacuum Producing Systems, Wastewater Separators and Process 
Unit Turnarounds'' (EPA-450/2-77-022). Further interpretations of EPA 
policy are found in the Blue Book, referred to in footnote 1. In 
general, these guidance documents have been set forth to ensure that 
VOC rules are fully enforceable and strengthen or maintain the SIP.
    BAAQMD's submitted Rule 8-8, ``Wastewater (Oil-Water) Separators'' 
includes the following significant changes from the current SIP:
     Adding a test method to detect leaks.
     Modifying the emissions determination section to allow 
Federal enforceability.
    EPA has evaluated the submitted rule and has determined that it is 
consistent with the CAA, EPA regulations, and EPA policy. Therefore, 
BAAQMD Rule 8-8, ``Wastewater (Oil-Water) Separators'' is being 
approved under section 110(k)(3) of the CAA as meeting the requirements 
of section 110(a) and part D. The final action on this rule serves as a 
final determination that the deficiency in this rule has been 
corrected. Therefore, if this direct final action is not withdrawn, on 
October 28, 1994, any sanction or FIP clock is stopped.
    Nothing in this action should be construed as permitting or 
allowing or establishing a precedent for any future implementation 
plan. Each request for revision to the state implementation plan shall 
be considered separately in light of specific technical, economic, and 
environmental factors and in relation to relevant statutory and 
regulatory requirements.
    EPA is publishing this document without prior proposal because the 
Agency views this as a noncontroversial amendment and anticipates no 
adverse comments. However, in a separate document in this Federal 
Register publication, the EPA is proposing to approve the SIP revision 
should adverse or critical comments be filed. This action will be 
effective October 28, 1994, unless, by September 28, 1994 adverse or 
critical comments are received.
    If the EPA receives such comments, this action will be withdrawn 
before the effective date by publishing a subsequent notice that will 
withdraw the final action. All public comments received will then be 
addressed in a subsequent final rule based on the proposed action 
published in today's Federal Register. The EPA will not institute a 
second comment period on this action. Any parties interested in 
commenting on this action should do so at this time. If no such 
comments are received, the public is advised that this action will be 
effective October 28, 1994.

Regulatory Process

    Under the Regulatory Flexibility Act, 5 U.S.C. 600 et seq., EPA 
must prepare a regulatory flexibility analysis assessing the impact of 
any proposed or final rule on small entities. 5 U.S.C. 603 and 604. 
Alternatively, EPA may certify that the rule will not have a 
significant impact on a substantial number of small entities. Small 
entities include small businesses, small not-for-profit enterprises and 
government entities with jurisdiction over population of less than 
50,000.
    SIP approvals under sections 110 and 301(a) and subchapter I, Part 
D of the CAA do not create any new requirements, but simply approve 
requirements that the State is already imposing. Therefore, because the 
Federal SIP-approval does not impose any new requirements, I certify 
that it does not have a significant impact on any small entities 
affected. Moreover, due to the nature of the Federal-state relationship 
under the CAA, preparation of a regulatory flexibility analysis would 
constitute Federal inquiry into the economic reasonableness of state 
action. The CAA forbids EPA to base its actions concerning SIPs on such 
grounds. Union Electric Co. v. U.S. E.P.A., 427 U.S. 246, 256-66 (S. 
Ct. 1976); 42 U.S.C. 7410 (a)(2).
    The Office of Management and Budget has exempted this regulatory 
action from Executive Order 12866 review.

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: August 15, 1994.
Felicia Marcus,
Regional Administrator.

    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. 7401-7671q.

Subpart F--California

    2. Section 52.220 is amended by adding paragraph (c)(198) to read 
as follows:


Sec. 52.220  Identification of plan.

* * * * *
    (c) * * *
    (198) New and amended regulations for the following APCDs were 
submitted on July 13, 1994, by the Governor's designee.
    (i) Incorporation by reference.
    (A) Bay Area Air Quality Management District.
    (1) Revised Rule 8-8, adopted on June 15, 1994.

[FR Doc. 94-21169 Filed 8-26-94; 8:45 am]
BILLING CODE 6560-50-M