[Federal Register Volume 60, Number 155 (Friday, August 11, 1995)]
[Notices]
[Pages 41066-41068]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-19902]
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ENVIRONMENTAL PROTECTION AGENCY
[FRL-5275-3]
California State Motor Vehicles Pollution Control Standards;
Opportunity for Public Hearing
AGENCY: Environmental Protection Agency (EPA)
ACTION: Notice of opportunity for public hearing and public comment
period.
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SUMMARY: The California Air Resources Board (CARB) has notified EPA
that it has adopted regulations regarding on-board diagnostic system
requirements for 1994 and later model year passenger cars, light-duty
trucks, and medium-duty vehicles (OBD II). On-board diagnostics consist
of a computer-based system incorporated into the vehicle electronics
for the purpose of detecting operational malfunctions within the
emission control system. When malfunctions are detected, a malfunction
light is illuminated on the instrument panel and a trouble code is
stored in the computer memory identifying the system in which the fault
has occurred. CARB initially requested that EPA find its OBD II
regulations within the scope of existing waivers of Federal preemption
pursuant to section 209 of the Clean Air Act (Act), 42 U.S.C. 7543(b),
as amended. Subsequently, CARB twice amended the subject regulations.
On June 14, 1995, California requested that, pursuant to section 209(b)
of the Clean Air Act, EPA waive Federal preemption for its onboard
diagnostics amendments including the December 1994 revisions. This
notice announces that EPA has tentatively scheduled a public hearing
for October 17, 1995, to hear comments from the general public
concerning CARB's request.
DATES: EPA has tentatively scheduled a public hearing for October 17,
1995, beginning at 9:30 a.m. Any person who wishes to testify on the
record at the hearing must notify EPA by September 29, 1995, that it
wishes to present oral testimony regarding CARB's request. Any party
may submit written comments regarding CARB's request by November 17,
1995. If EPA receives one or more requests to testify on the pending
request, a hearing will be held. Please note that if no one notifies
EPA that they wish to testify, no hearing will be held. Therefore, any
person who plans to attend the hearing should call Leila Holmes Cook of
EPA's Manufacturers Operation Division at (202) 233-9252, on or after
October 2, 1995, to determine if a request for a hearing has been
received by the Agency and thus whether a hearing will be held.
Regardless of whether or not a hearing is held, written comments
regarding CARB's request will be accepted through November 17, 1995.
ADDRESSES: If a request is received, a public hearing will be held at:
Sheraton Inn, 3200 Boardwalk, Ann Arbor, Michigan 48108. Parties
wishing to testify at the hearing should provide written notice to:
Charles N. Freed, Director, Manufacturers Operations Division (6405J),
U.S. Environmental Protection Agency, 401 M Street, S.W., Washington,
D.C. 20460. In addition, written comments, in duplicate, should be sent
to Mr. Freed at the same address. Copies of material relevant to the
waiver request (Docket No. A-90-28) will be available for public
inspection during the working hours of 8:30 AM to 12:00 PM and 1:30 PM
to 3:30 PM, Monday through Friday, at: U.S. Environmental Protection
Agency, Air Docket (LE-131), Room M1500, First Floor Waterside Mall,
401 M Street, S.W., Washington, D.C. 20460 [Telephone (202) 260-7548].
FOR FURTHER INFORMATION CONTACT: Leila Holmes Cook, Attorney/Advisor,
Manufacturers Operations Division (6405J), U.S. Environmental
Protection Agency, Washington, DC. 20460, Telephone: (202) 233-9252.
SUPPLEMENTARY INFORMATION:
I. Background and Discussion
Section 209(a) of the Act as amended, 42 U.S.C. 7543(a), provides
in part: ``No State or any political subdivision thereof shall adopt or
attempt to enforce any standard relating to the control of emissions
from new motor vehicles or new motor vehicle engines subject to this
part * * * [or] require certification, inspection, or any other
approval relating to the control of emissions * * * as condition
precedent to the initial retail sale, titling (if any), or registration
of such motor vehicle, motor vehicle engine, or equipment.''
Section 209(b) of the Act requires the Administrator, after notice
and an opportunity for public hearing, to waive application of the
prohibitions of section 209(a) for California ``* * * if the State
determines that the State standards will be, in the aggregate, at least
as protective of public health and welfare as applicable Federal
standards. No such waiver shall be granted if the Administrator finds
that--(A) the determination of the State is arbitrary and capricious,
(B) [California] does not need such * * * standards to meet compelling
and extraordinary conditions, or (C) [its] standards and accompanying
enforcement procedures are not consistent with section 202(a) of [the
Act].''
As previous decisions granting waivers of federal preemption have
explained, State standards are inconsistent with section 202(a) if
there is inadequate lead time to permit the development of the
necessary technology given the cost of compliance within that time
period or if the Federal and state test procedures impose inconsistent
certification requirements.
With regard to enforcement procedures accompanying standards, I
must grant the requested waiver unless I find that these procedures may
cause the California standards, in the aggregate, to be less protective
of public health and welfare than the applicable Federal standards
promulgated pursuant to section 202(a), or unless the California and
Federal certification test procedures are inconsistent.
Once California has been granted waiver for a set of standards and
enforcement procedures for a class of vehicles, it may adopt other
conditions precedent to initial retail sale, titling or registration of
the subject class of vehicles without having to receive a further
waiver of Federal preemption.
CARB initially requested that EPA find its OBD II regulations
within the scope of existing waivers of federal preemption pursuant to
section 209 of the Clean Air Act (Act), 42 U.S.C. 7543(b), as amended.
Subsequently, CARB twice amended the subject regulations. EPA finalized
its On-Board Diagnostics Rule on January 29, 1993 [58 FR 9468 (February
19, 1993)]. By letter dated June 14, 1995, California requested that,
pursuant to section 209(b) of the Clean Air Act, EPA waive Federal
preemption for its onboard diagnostics amendments including the
December 1994 revisions. These
[[Page 41067]]
amendments, which apply to 1994 and later model year passenger cars,
light-duty trucks, and medium-duty vehicles require the monitoring of
essentially all emission control systems, and emission related
components. In addition, it addresses deficiencies in the OBD I
requirements that have become apparent since their adoption, and
establishes new testing protocol and standardization procedures.
OBD II provides for new monitoring requirements covering: catalyst
system condition, engine misfire detection, evaporative control system
operation, supplementary air system function, the exhaust gas
recirculation (EGR) system flow rate, chloroflourocarbon loss (air
conditioning refrigerant), and monitoring of other components and
systems controlled by the on-board engine control computer. In general
the California OBD II regulations require that a deteriorated component
or system be detected as malfunctioning by the time its lack of
performance causes vehicle emissions to exceed 1.5 times any of the
standards to which the vehicle is certified or when a component is
completely non-functioning. Therefore, permissible emission increases
are a function of the standards to which the vehicle is certified.
A number of changes to requirements initially established under OBD
I were made to increase the effectiveness of the monitoring systems in
detecting emission-related malfunctions. These requirements include
tampering deterrence features, as well as, improvements to the
malfunction detection effectiveness of the fuel system, oxygen sensor,
EGR system, other emission-related electronic components.
Manufacturers are required to perform emission tests on a
durability demonstration vehicle equipped with deteriorated emission-
critical parts and show that the on-board diagnostic system will
identify when an emission standard is exceeded by 1.5 times the
applicable standard.
In order to facilitate vehicle repairs and assist Inspection and
Maintenance Programs in utilizing the OBD system, CARB has required
standardized vehicle communication systems that interface with a
relatively low-cost, hand-held, universal diagnostic tool. The tool
will be able to read specific diagnostic information such as fault
codes which lead service personnel to the likely area of any
malfunctions, and will provide continuously updated engine parameter
data that will further help to isolate fault codes and ensure proper
repairs.
In response to a Petition from Ford Motor Company, dated March 29,
1993, CARB modified its OBD II regulations to give the Executive
Officer, upon request from a manufacturer, the authority to waive one
or more of the OBD II requirements for vehicle models or engine
families introduced prior to April 1, 1994. In making this
determination the Executive Officer would consider, among other things,
the overall extent to which the OBD II requirements will be met, and
whether the manufacturer made good-faith efforts to comply with the
regulation. For 1995 model year vehicles for which production begins
after March 31, 1994, per vehicle penalties in increments of $25 or $50
per vehicle for the third and subsequently identified deficiency not to
exceed $500 per vehicle are possible.
On December 8, 1994, CARB approved amendments which addressed
manufacturer concerns with developing fully compliant monitoring
systems by the 1996 model year. Specifically, these amendments give
additional compliance flexibility for manufacturers having difficulty
creating enhanced diagnostic systems which monitor catalysts used in
low-emission vehicles (LEV) and adequate misfire detection. In
addition, the amendments also address monitoring requirements for
evaporative system leaks and for the monitoring of diesel and alternate
fuel vehicles.
In its request letter dated, June 14, 1995, California has stated
that regardless of whether the EPA views the subject regulation as
accompanying enforcement procedures or new standards, the requisite
findings to support a grant of a waiver of federal preemption have been
made. That is, as accompanying enforcement procedures, the regulations
do not endanger the protectiveness finding that the ARE has made for
previously granted waiver determinations and the regulations are
consistent with the intent of section 202(a) of the federal CAA. In the
alternative, if the OBD II regulations are viewed as new emission
standards, a waiver should be granted because the regulations (as
amended) are, in the aggregate, at least as stringent as the comparable
federal OBD regulations, California needs its own motor vehicle program
to meet compelling and extraordinary conditions in the state, and the
regulations are consistent with section 202(a) of the CAA. Section
202(a) requires that the procedures provide sufficient lead time to
permit the development and application of requisite technology, giving
appropriate consideration to the cost of compliance within such period.
In addition, the Agency has held that to avoid inconsistency with
section 202(a), California's procedures may not impose inconsistent
certification requirements such that manufacturers would be unable to
meet both the California and Federal requirements with the same test
vehicle.
Once California has been granted waiver of Federal preemption for a
set of standards and enforcement procedures for a class of vehicles, it
may adopt other conditions precedent to the initial retail sale,
titling or registration of the subject class of vehicles without having
to receive a further waiver of Federal preemption.
California's request will be considered according to the procedures
for a waiver decision, which includes providing the opportunity for a
public hearing. Any party wishing to present testimony at the hearing
should address the following issues:
(1) Whether California's OBD II regulations are appropriately
considered accompanying enforcement procedures or new emission
standards;
(2) If CARB's regulations are accompanying enforcement procedures,
address (A) whether these procedures may cause the California
standards, in the aggregate, to be less protective of public health and
welfare than the applicable Federal standards promulgated pursuant to
section 202(a), and (B) whether the California and Federal
certification test procedures are inconsistent.
(3) If CARB's regulations are standards, address (A) whether
California's determination that the amended standards are at least as
protective of public health and welfare as applicable Federal standards
is arbitrary and capricious; (B) whether California needs separate
standards to meet compelling and extraordinary conditions; and, (C)
whether California's standards and accompanying enforcement procedures
are consistent with section 202(a) of the Act.
II. Procedures for Public Participation
Any person desiring to make an oral statement on the record should
file ten (10) copies of their proposed testimony and other relevant
material with the Director of EPA's Manufacturers Operations Division
at the Director's address listed above not later than October 13, 1995.
In addition, that person should submit 25 copies, if feasible, of the
planned statement to the presiding officer at the time of the hearing.
Because a public hearing is designed to give interested parties an
opportunity to participate in this proceeding, there are no adverse
parties as such.
[[Page 41068]]
Statements by participants will not be subject to cross-examination by
other participants without special approval by the presiding officer.
The presiding officer is authorized to strike from the record
statements which he or she deems irrelevant or repetitious and to
impose reasonable limits on the duration of the statement of any
witness.
If a hearing is held, the Agency will make a verbatim record of the
proceedings. Interested persons may arrange with the reporter at the
hearing to obtain a copy of the transcript at their own expense.
Regardless of whether a public hearing is held, EPA will keep the
record open until November 17, 1995. The Administrator will then render
her decision on CARB's request based on the record of the public
hearing, if one is held, relevant written submissions, and other
information which is deemed pertinent. All information will be
available for public inspection at the EPA Air Docket.
Dated: August 3, 1995.
Ann E. Goode,
Acting Assistant Administrator for Air and Radiation.
[FR Doc. 95-19902 Filed 8-10-95; 8:45 am]
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