[Federal Register Volume 61, Number 53 (Monday, March 18, 1996)]
[Proposed Rules]
[Pages 10920-10962]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-6011]



=======================================================================
-----------------------------------------------------------------------

ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[CA114-1-7280; FRL-5439-8]


Approval and Promulgation of Implementation Plans; California--
Ozone

AGENCY: Environmental Protection Agency (EPA).

ACTIONS: Notice of proposed rulemaking.

-----------------------------------------------------------------------

SUMMARY: EPA proposes to approve revisions to the California State 
Implementation Plan (SIP) for ozone for 7 nonattainment areas: South 
Coast, Southeast Desert, Ventura, Sacramento, San Diego, San Joaquin 
Valley, and Santa Barbara, submitted in order to comply with the 
November 1994 deadline under the Clean Air Act (CAA). In addition, EPA 
proposes to approve specific local and statewide air pollution control 
measures, including the California enhanced motor vehicle inspection 
and maintenance program.
    EPA proposes to approve these revisions to the California SIP under 
provisions of the CAA regarding EPA action on SIP submittals for 
nonattainment areas.
    EPA proposes to establish a consultative process on the potential 
for additional mobile source controls that can contribute to attainment 
in the South Coast.

DATES: Written comments on the proposed EPA actions must be received by 
EPA at the address below on or before May 2, 1996.

ADDRESSES: Written comments on this proposed action should be addressed 
to: Regional Administrator, Attention: Office of Federal Planning (A-1-
2), Air and Toxics Division, Environmental Protection Agency, Region 9, 
75 Hawthorne Street, San Francisco, CA 94105-3901
    Copies of the SIP submittal and materials relevant to this 
rulemaking are contained in Docket No. A-96-13, which is available for 
viewing during normal business hours at the address shown above.
    Copies of the SIP materials are also available for inspection at 
the addresses listed below:

Environmental Protection Agency, Air Docket (6102), 401 M Street, S.W., 
Washington, DC
California Air Resources Board, 2020 L Street, Sacramento, California

    In addition, copies of the relevant local plan, the State plan 
(1994 California Ozone SIP), and EPA's technical support documents for 
this rulemaking are available at the following locations:

Santa Barbara Air Pollution Control District, 26 Castilian Drive B-23, 
Goleta, California
San Diego Air Pollution Control District, 9150 Chesapeake Drive, San 
Diego, California
San Joaquin Valley Unified Air Pollution Control District, 1999 
Tuolumne Street, Fresno, California
Ventura County Air Pollution Control District, 669 County Square Drive, 
Ventura, California
Mojave Desert Air Quality Management District, 15428 Civic Drive, Suite 
200, Victorville, California
South Coast Air Quality Management District, 21865 E. Copley Drive, 
Diamond Bar, California

Electronic Availability

    This document and EPA's technical support documents are available 
at Region 9's site on the Internet's World Wide Web at http://
www.epa.gov/region09/air/sip/.

FOR FURTHER INFORMATION CONTACT: Julia Barrow, Director, Office of 
Federal Planning (A-1-2), Environmental Protection Agency, Region 9, 75 
Hawthorne Street, San Francisco, CA 94105-3901, (415) 744-2434

SUPPLEMENTARY INFORMATION:

Table of Contents

I. Background
    A. Summary
    B. Requirements of the Act
    C. Affected Areas
    
[[Page 10921]]

    D. The California Ozone Plans
    1. SIP Submittals
    2. EPA Completeness Findings
    E. Related SIP Approvals
II. Review of the State Submittal
    A. State Measures
    1. Mobile Source Measures
    a. Introduction
    b. Review of Measures
    (i) M1
    (ii) M2
    (iii) M3
    (iv) M4
    (v) M5 34
    (vi) M7
    (vii) M8 39
    (viii) M9
    (ix) M11
    (x) Additional New Control Technologies
    c. EPA Action
    2. I/M
    a. Review of Program
    b. Emission Reductions
    c. EPA Action
    3. Consumer Products
    a. Introduction
    b. Adopted Consumer Products Rules
    (i) Measure CP-1
    (ii) Measure CP-3 (Aerosol Paints)
    c. Mid-Term Committal Measure (CP-2)
    d. Long-Term Committal Measure (CP-4)
    e. Alternative Compliance Plans (ACPs)
    f. Emission Reductions
    g. EPA Action
    4. Pesticides
    a. Review of Measure
    b. Emission Reductions
    c. EPA Action
    B. Federal Measures
    1. State Approach
    2. EPA Action
    C. Local ROP and Attainment Plans and Measures
    1. Introduction and Common Elements
    a. Emission Inventories
    (1) 1990 Base Year Inventories
    (2) Inventory Projections
    b. Rate of Progress
    c. NOX Substitution
    d. Modeling
    (1) Introduction
    (2) Uncertainty and Model Performance
    (3) Number of Episodes
    (4) Attainment Test
    (5) Transport
    2. Santa Barbara
    a. Identification of Plan
    b. 1990 Base Year Inventories
    c. SIP Control Measures
    (1) Description
    (2) EPA Action
    d. ROP Provisions
    (1) ROP Emission Targets
    (2) ROP Control Strategy
    (3) EPA Action
    e. Demonstration of Attainment
    (1) Control Strategy
    (2) Modeling and Attainment Demonstration
    (3) EPA Action
    f. Overall EPA Action
    3. San Diego
    a. Identification of Plan
    b. 1990 Base Year Inventories
    c. SIP Control Measures
    (1) Description
    (2) EPA Action
    d. ROP Provisions
    (1) ROP Emission Targets
    (2) ROP Control Strategy
    (3) EPA Action
    e. Demonstration of Attainment
    (1) Control Strategy
    (2) Modeling and Attainment Demonstration
    (3) EPA Action
    f. Overall EPA Action
    4. San Joaquin Valley
    a. Identification of Plan
    b. 1990 Base Year Inventories
    c. SIP Control Measures
    (1) Description
    (2) EPA Action
    d. ROP Provisions
    (1) ROP Emission Targets
    (2) 15% ROP Control Strategy
    (3) Post-1996 ROP Control Strategy
    (4) EPA Action
    e. Demonstration of Attainment
    (1) Control Strategy
    (2) Modeling and Attainment Demonstration
    (3) EPA Action
    f. Overall EPA Action
    5. Sacramento
    a. Identification of Plan
    b. 1990 Base Year Inventories
    c. SIP Control Measures
    (1) Description
    (2) EPA Action
    d. ROP Provisions
    (1) ROP Emission Targets
    (2) 15% ROP Control Strategy
    (3) Post-1996 ROP Control Strategy
    (4) EPA Action
    e. Demonstration of Attainment
    (1) Control Strategy
    (2) Modeling and Attainment Demonstration
    (3) EPA Action
    f. Overall EPA Action
    6. Ventura
    a. Identification of Plan
    b. 1990 Base Year Inventories
    c. SIP Control Measures
    (1) Description
    (2) EPA Action
    d. ROP Provisions
    (1) ROP Emission Targets
    (2) 15% ROP Control Strategy
    (3) Post-1996 ROP Control Strategy
    (4) EPA Action
    e. Demonstration of Attainment
    (1) Control Strategy
    (2) Modeling and Attainment Demonstration
    (3) EPA Action
    f. Overall EPA Action
    7. South Coast
    a. Identification of Plan
    b. 1990 Base Year Inventories
    c. SIP Control Measures
    (1) Description
    (2) EPA Action
    d. ROP Provisions
    (1) ROP Emission Targets
    (2) 15% ROP Control Strategy
    (3) Post-1996 ROP Control Strategy
    (4) EPA Action
    e. Demonstration of Attainment
    (1) Control Strategy
    (2) Modeling and Attainment Demonstration
    (3) EPA Action
    f. Overall EPA Action
    8. Southeast Desert
    a. Identification of Plans
    b. 1990 Base Year Inventories
    c. SIP Control Measures
    (1) Description
    (2) EPA Action
    d. ROP and Attainment Provisions
    (1) ROP and Attainment Emission Targets
    (2) State Approach
    (3) Modeling and Attainment Demonstration
    (4) EPA Action
    e. Overall EPA Action
III. Summary of EPA Actions
IV. Regulatory Process
V. Unfunded Mandates

Appendix: Status of EPA's Activities Relating to the ``Federal 
Measures'' in the California SIP Submittal

I. Background

A. Summary

    Air pollution remains a significant public health concern in many 
parts of the country, including many areas in California. The Clean Air 
Act requires states to develop state implementation plans (SIPs) that 
lay out how areas will reduce pollution and attain the health-based air 
quality standards for a number of pollutants, including ground level 
ozone.
    On the Clean Air Act deadline for ozone SIP submittals, November 
15, 1994, the California Air Resources Board (CARB) submitted to EPA 
the State's ozone plans, including State and local measures and 
regulations, emission inventories, modeling analyses, rate-of-progress 
(ROP) plans, and attainment demonstrations. This material was followed 
by several supplementary SIP submissions and technical documentation 
over the past year, addressing in still greater detail and more 
completely the critical ozone planning requirements of the Act.
    Together these submissions present a road map of how the State of 
California envisions meeting the health-based ozone air quality 
standards in 7 distinct geographic areas within the State by the dates 
specified in the Clean Air Act. The submittals represent the 
culmination of years of work and collaboration among stakeholders at 
the local, regional, State, national, and even international level. The 
plans were carefully tailored to meet the clean air goals of 
Californians, reflecting the social and economic priorities of each 
affected area within the State as well as the legitimate concerns of 
national and international commerce.
    In the last 30 years, California has significantly improved air 
quality in its cities through efforts by businesses and

[[Page 10922]]

communities to reduce ground level ozone pollution. California faces 
additional challenges in its fight for clean air because of rapid 
growth in population and motor vehicle use as well as meteorological 
conditions conducive to ozone formation. Nevertheless, there are still 
several areas where air pollution continues to threaten public health, 
including Southern California, which violates the standard on almost 
one out of every three days--25 times more frequently than the next 
most polluted urban areas. The current plans build on California's 
pioneering air pollution control efforts to make progress against, and 
eventually eliminate, one of the most severe and intractable 
environmental and public health problems in the Country.
    The Clean Air Act guarantees to all Americans healthy air to 
breathe. Unfortunately, approximately one-quarter of Americans 
nationwide and more than three-quarters of all Californians are 
currently exposed to health-threatening levels of air pollution. Of the 
top ten U.S. urban areas with the most violations of the national 
ambient air quality standard for ozone, nine are located in California.
    Ozone is a highly reactive chemical compound which, at ground 
level, can affect both biological tissues and man-made materials. Ozone 
exposure causes a range of human pulmonary and respiratory health 
effects. While ozone's effects on the pulmonary function of sensitive 
individuals (e.g., asthmatics) are of primary concern, evidence 
indicates that high ambient levels of ozone can cause respiratory 
symptoms in healthy adults and children as well. For example, exposure 
to ozone for several hours at moderate concentrations, especially 
during outdoor work and exercise, has been found to decrease lung 
function, increase airway inflammation, increase sensitivity to other 
irritants, and impair lung defenses against infections in otherwise 
healthy adults and children. Other symptoms include chest pain, 
coughing, and shortness of breath.
    There are also public health consequences from direct exposure to 
the two principal pollutants that cause ozone formation: oxides of 
nitrogen (or NOX) and volatile organic compounds (or VOCs). Since 
attainment of the ozone standard requires reductions in these two 
precursor pollutants, successful implementation of the ozone SIPs will 
yield additional health benefits. Exposure to nitrogen dioxide (a major 
component of NOX) can reduce breathing efficiency and increase 
lung and airway irritation even in healthy adults; elevated NO2 
levels also increase symptoms of respiratory illness, lung congestion, 
wheeze, and increased bronchitis in children. VOCs include many air 
toxics (such as benzene), which can cause respiratory, immunological, 
neurological, reproductive, developmental, and mutagenic problems. Some 
VOCs are also probable or known human carcinogens.
    Finally, the conversion of NOX into fine particulate matter is 
a serious health concern, especially in Southern California. Studies 
have shown that high concentrations of fine particulate matter are 
associated with major human health problems, including deleterious 
effects on breathing and the respiratory system, aggravation of 
existing respiratory and cardiovascular disease, alternations in the 
body's defense mechanisms against foreign materials, and damage to lung 
tissue resulting in fibrosis, carcinogenesis, and premature death.
    In addition to impacts on public health, ozone damages vegetation 
and NOX emissions, in the form of acid deposition, both harms 
plants and causes eutrophication of lakes and streams. Estimates based 
on experimental studies of the major commercial crops in the U.S. 
suggests that ozone may be responsible for significant agricultural 
crop yield losses. In addition, ozone causes noticeable leaf damage in 
many crops, which reduces their marketability and value.
    Efforts to clean the air require significant resources, but the 
benefits are substantial. While it is easier to put a price tag on a 
regulation to limit air pollution than it is to assign a dollar value 
to being able to breathe without losing lung capacity or to see 
mountains that are a few miles away, we know that impacts on 
individuals' health associated with air pollution have considerable 
physiological, psychological, and purely financial costs. Similarly, 
lower crop yields, decreased forest production, and accelerated 
building deterioration due to air pollution also have financial costs 
that will be reduced by attainment of the clean air standards.
    At the same time, clean air has benefits even beyond healthy 
breathing. The technologies and industries that will make air pollution 
a problem of the past can also be the growth industries that bring to 
California jobs and dollars from markets all around the world. A recent 
World Bank study projects a $300 billion worldwide marketplace for 
clean technologies by the year 2000. Innovative technologies offer the 
promise of continued economic growth in concert with strong 
environmental protection.
    To achieve public health progress over the past 30 years, 
California has already adopted uniquely stringent controls on a vast 
array of industrial sources, consumer products, and motor vehicles. As 
developed by California and Californians, these existing regulations 
and the SIP's proposed enhancements to them promote technological 
advances while meeting the economic and environmental needs of the 
State. The credit for this achievement is shared by the State's air 
pollution professionals, regulated industry, and citizens, who continue 
to explore new and innovative ways to minimize pollution associated 
with their products and activities.

Plan Approvals

    When a state submits a SIP to EPA the Clean Air Act requires the 
Agency to review the plan to determine if it meets the Act's 
requirements and environmental goals. California's 1994 Ozone SIP 
included, for both the State and local agencies, fully adopted 
regulations and control measures for which regulations must be written. 
Since November 1994, EPA has already completed approval of all but one 
of the State's fully adopted regulations and most of the State's 
commitments to adopt regulations in the future. The State submitted its 
enhanced motor vehicle inspection and maintenance (I/M) regulations on 
January 22, 1996. EPA is proposing today approval of the I/M 
regulations, which should help to assure the maximum benefits from the 
California motor vehicle emissions standards.
    EPA believes that this SIP represents an important blueprint for 
clean air in California. By today's actions, the Federal government 
signals its intention to concur with these plans. California's 
commitments, when implemented, will improve air quality and protect 
public health. Now it is incumbent on California to meet those 
commitments. EPA is today generally proposing to approve in full the 
critical components of all of the plans for all of the areas.
    EPA is proposing approval of:
     The emission inventories and modeling analyses in all of 
the affected areas;
     The 15% rate-of-progress plans for the period 1990-1996 in 
the South Coast (the Los Angeles basin), Ventura, San Joaquin, San 
Diego, and Santa Barbara;
     The post-1996 rate-of-progress plans in the South Coast, 
Ventura, Sacramento, San Joaquin, and San Diego;

[[Page 10923]]

     The attainment demonstrations for the South Coast, 
Southeast Desert, Ventura, Sacramento, San Joaquin, San Diego, and 
Santa Barbara;
     All of the individual local measures included with the 
plans.

EPA will take action separately on the 15% progress plan for Sacramento 
and the progress plans for the Southeast Desert.
    The South Coast ozone attainment demonstration raises a unique 
issue. In the SIP, California assumes that EPA will issue specific 
national mobile source emission reduction rules to help the South Coast 
reach attainment. While some additional mobile source standards may be 
feasible and desirable, EPA believes that it is important to examine 
and discuss these standards because they have far-reaching 
implications. As new national and international standards are being 
discussed, EPA commits to support rather than hinder State and local 
progress in implementing and updating the ozone attainment 
demonstration for the South Coast.
    To achieve this objective and allow for approval of the South Coast 
attainment demonstration at this time, EPA proposes an approach which 
the Agency believes is consistent with EPA's guiding principle for 
implementing its statutory responsibilities: accomplish environmental 
goals through innovative approaches that are collaborative rather than 
adversarial, and that provide flexibility while requiring 
accountability.
    The South Coast attainment demonstration is based primarily on 
those State and local components (enumerated in the text of the notice) 
that make up the vast majority of reductions needed for attainment in 
the South Coast. EPA has already approved most of the State and local 
adopted regulations and many of the State's new commitments made as 
part of California's 1994 Ozone SIP. EPA proposes in this document to 
approve the enforceable State and local commitments that make up the 
remainder of the plan. These State and local regulations and 
commitments, together with creditable national controls which EPA has 
promulgated or proposed, account for well over 90% of the reductions 
needed for attainment.
    To address the small remaining shortfall which the State has 
assigned to the Federal government, EPA proposes to conduct a public 
consultative process on future mobile source controls. The Agency also 
commits to undertake rulemaking, after the consultative process, on any 
controls which are determined to be appropriate for EPA. Finally, EPA 
is proposing to require that the State submit, before EPA's final 
action on the South Coast plan, an enforceable commitment to submit a 
revised South Coast attainment demonstration and gap-filling State or 
local control measures, if needed, after the consultative process.
    In assigning EPA responsibility for issuing Federal emission 
standards for various mobile sources, the State argued that attainment 
in Southern California depends upon emission reductions from national 
and international mobile sources which could not legally or practically 
be regulated at the State or local level. EPA and the State have been 
working together for the past several years to evaluate the potential 
for additional national emission controls on mobile sources. EPA has 
recently proposed or finalized national emission controls for 
construction, farm, and lawn and garden equipment; pleasure craft and 
some categories of marine vessels; and potential new controls on heavy-
duty truck emissions. The proposed nationwide heavy-duty truck 
controls, in fact, are an outgrowth of an EPA-California joint 
initiative, developed in consultation with heavy-duty engine 
manufacturers, which also extends to possible future controls on heavy-
duty nonroad engines. Other assignments by the State present unique 
challenges, such as the establishment of stringent engine emission 
standards for aircraft and ocean-going vessels--sources which are today 
regulated by treaty principally at the international level.
    EPA proposes to continue to consult with the State and other 
stakeholders to examine the potential for additional mobile source 
controls that can contribute to attainment in the South Coast. This 
period provides an opportunity to agree on a set of emission reductions 
without adverse consequences to the State or the environment, whether 
those additional reductions come from national and international 
emission standards or from new State and local measures. At the 
conclusion of this consultation, in June 1997, EPA expects that the 
State and local agencies will be able to amend the attainment 
demonstration appropriately, based on the final mix of national, State, 
and local mobile source control responsibilities. During the 
consultative process, the State and local agencies need to proceed 
aggressively with implementing other parts of the SIP in order to 
maintain progress towards cleaning the air.
    As mentioned, EPA is proposing to approve all of the local agency 
commitments to adopt and implement rules by scheduled dates to achieve 
specified emission reductions. In some cases, most notably the South 
Coast, scheduled adoption dates have already been missed. It is 
critically important that these adoption schedules be amended, that the 
local agency staff and governing board's commit themselves to 
reasonable and aggressive schedules for rule development and adoption, 
and that the affected agencies proceed successfully with plan 
implementation to fulfill their public commitments to deliver clean 
air. EPA will work with the local agencies, the regulated community, 
and the public to help the government boards and officials to meet 
their public health obligations. Implementation failures will prolong 
the unacceptable current levels of pollution and will expose the areas 
to potential sanctions under the Clean Air Act.
    Section 182(e)(5) of the Clean Air Act authorizes inclusion of 
conceptual, new-technology measures in the attainment demonstration for 
the South Coast, the Country's only ``extreme'' ozone nonattainment 
area. In this 1990 amendment, Congress recognized that the South 
Coast's enormous emission reduction requirements justified giving more 
time to allow for the completion of research and development phases 
that must precede the successful commercialization of practically zero-
emitting products, industrial processes, and means of transportation. A 
large portion of the remaining needed reductions in the 1994 South 
Coast plan is now assigned to conceptual measures. If these measures 
are to contribute to the solution of the South Coast's ozone problem in 
later years, all responsible governmental agencies and private industry 
must now increase their resource commitments and cooperative efforts to 
develop the clean technologies and innovative market approaches that 
will be the basis for the area's economic and environmental progress.
    EPA is soliciting public comments on the proposed SIP actions. The 
Addresses section of this document provides information on the public 
comment process and opportunities to inspect the SIP and related 
materials. EPA hopes to take final action soon so that California can 
continue to make progress in implementing the challenging strategies in 
the plans.
    In transmitting the 1994 California Ozone SIP, the Chairwoman of 
the California Air Resources Board stated that ``The SIP provides a 
firm guarantee to citizens of California that clean air

[[Page 10924]]
goals will be met within the time frames set out in the CAA.'' Indeed, 
the goal of the sweeping 1990 Clean Air Act Amendments has been not 
simply to sustain the historic progress in reducing air pollution, but 
instead to honor the underlying promise of the Act: clean, healthy air 
for all Americans. We believe that California's achievement in these 
plans for the most polluted areas of the nation proves that the Clean 
Air Act is effective when citizens and public officials work together 
to focus technical expertise and common sense to protect themselves, 
the health of their children, and the welfare of future generations. 
The Federal government is committed to playing its part in this final 
effort to deliver clean air to all Californians.

B. Requirements of the Act

    Title I of the 1990 Amendments to the CAA (CAAA) completely revised 
the Part D nonattainment provisions for areas which had not attained 
the national ambient air quality standards (NAAQS) for ozone. In 
addition, Congress made numerous changes governing EPA's processing of 
SIPs, as well as the repercussions of State failures to meet the 
various SIP requirements.
    Section 110 of Part A of Title I contains general requirements 
applicable to all SIP revisions. Section 110(k) describes the Agency's 
actions on SIP revisions, including findings as to whether submissions 
are complete (section 110(k)(1)), deadlines for EPA actions (section 
110(k)(2)), types of actions the Agency may take on complete submittals 
(110(k) (3) and (4)), and sanctions which may be applied to areas which 
fail to meet the Act's requirements (sections 179 and 110(m)) or fail 
to implement approved SIPs (sections 113(a)(5), 173(4), and 179).
    The requirements addressed by this proposal are generally those of 
Part D of Title I, pertaining to nonattainment areas. Such areas are 
designated under section 107 of the Act (codified at 40 CFR Part 81). 
While Subpart 1 of Part D (sections 171 to 179 CAA) describes general 
requirements for nonattainment areas, Subpart 2 (sections 181 to 185B) 
lists additional provisions added under the 1990 CAAA for ozone 
nonattainment areas.
    Under this subpart, ozone nonattainment areas are classified 
according to the severity of the nonattainment problem, and become 
subject to a graduated series of requirements. The classification 
scheme for ozone nonattainment areas is listed under section 181, which 
also establishes deadlines for attainment. The nonattainment 
classifications and applicable attainment deadlines are: marginal 
(November 15, 1993), moderate (November 15, 1996), serious (November 
15, 1999), severe (November 15, 2005 or 2007), and extreme (November 
15, 2010). Section 181(a) further provides that the attainment date 
shall be ``as expeditiously as practicable but not later than'' these 
deadlines.
    EPA has issued preliminary interpretations of the amended Act's 
provisions applicable to these SIP obligations. See, for example, the 
``General Preamble for the Implementation of Title I of the Clean Air 
Act Amendments of 1990,'' (57 FR 13498 [April 16, 1992]). In this 
proposed rulemaking action, EPA is applying these policies to the 
proposed California ozone SIP, taking into consideration the specific 
factual issues presented.
    The central SIP requirements for ozone nonattainment areas are 
demonstrations of reasonable further progress (or ``rate of progress'') 
and attainment. Section 182(b)(1) requires, for areas classified as 
moderate or above, submission by November 15, 1993 of a SIP revision 
providing for reasonable further progress, defined as a reduction from 
1990 baseline emissions of at least 15% actual emissions of volatile 
organic compounds (VOC), taking into account growth, during the first 6 
years following enactment of the 1990 CAAA (i.e., up to November 15, 
1996).
    Baseline emissions for calculating the required ROP reduction are 
defined at section 182(b)(1)(B). Baseline emissions are relative to a 
particular year for which the ROP reduction is calculated, and differ 
from the 1990 base year emissions primarily in excluding reductions for 
certain Federal programs which were already required prior to the 1990 
CAAA. Section 182(b)(1)(C) describes a number of exclusions from 
creditability for the purposes of meeting the ROP requirement.
    For moderate areas, section 182(b)(1) requires submission of a plan 
revision by November 15, 1993, that provides an attainment 
demonstration including sufficient annual reductions in VOC and 
NOX to attain the ozone NAAQS by November 15, 1996. The attainment 
demonstration requirement can be met through applying EPA-approved 
modeling techniques.
    Section 182(c)(2)(B) requires, for serious and above areas, 
submission by November 15, 1994, of reasonable further progress and 
attainment plans. For these areas, the CAA defines reasonable further 
progress as an additional ROP reduction above and beyond the required 
1996 reductions, of 3% per year of baseline VOC emissions, averaged 
over each consecutive 3-year period from November 15, 1996 until 
attainment. Section 182(c)(2)(A) also requires attainment plans, based 
on photochemical grid modeling, to be submitted by November 15, 1994, 
for serious and above areas.
    Section 182(c)(2)(C) allows for actual NOX emissions 
reductions (after accounting for growth) that occur after the base year 
of 1990 to be used to meet post-1996 ROP emission reduction 
requirements. The reader is referred to section II.C.1.c. below for a 
discussion of the Agency's NOX substitution criteria.
    Sections 182(g)(3) and 182(g)(5) specify requirements for areas 
which fail to submit a ROP milestone compliance demonstration under 
section 182(g)(2) within the required period or if the Administrator 
determines that the area has not met any applicable milestone. The 
first ozone ROP milestone compliance demonstration is due April 1997, 
for the period 1990-1996. Among the options discussed in section 182(g) 
for curing a ROP shortfall is the use of an economic incentive program 
(EIP). Under section 182(g)(4)(B), EPA promulgated requirements for 
EIPs at 40 CFR Part 51, Subpart U (see 40 CFR 51.490 through 40 CFR 
51.494--``EIP Rules and Guidance''). These EIP rules also serve as 
policy guidance to determine the approvability of SIP measures that 
rely on economic incentives (see 40 CFR 51.490(b)).
    Under section 182(b)(4) of the Act, basic motor vehicle inspection 
and maintenance (I/M) programs are required in all moderate ozone 
nonattainment areas. Under section 182(c)(3), ozone nonattainment areas 
designated as serious and worse with 1980 populations of 200,000 or 
more are required to meet EPA regulations for ``enhanced'' I/M 
programs. As required by section 182(a)(2)(B) of the Act, EPA published 
updated requirements for I/M programs on November 5, 1992 (40 CFR part 
51, Subpart S, see also 57 FR 52950). On September 18, 1995, EPA issued 
flexibility amendments to these I/M rules, allowing for an additional, 
less stringent enhanced I/M performance standard for areas that can 
meet the ROP and attainment requirements with an I/M program that falls 
below the originally promulgated enhanced I/M performance standard (see 
60 FR 48029). On November 28, 1995, the National Highway System 
Designation Act (Public Law 104-59) was enacted. Section 348 of this 
legislation modifies the I/M provisions

[[Page 10925]]
of the Clean Air Act, providing a mechanism for approval with full 
credit for decentralized or test-and-repair enhanced I/M programs under 
certain circumstances. The legislation also establishes an 18-month 
evaluation period to verify that the assigned credits have a basis in 
fact, prior to permanent program approval.
    Part D of the Act includes other ozone SIP requirements. EPA has 
previously acted upon some SIP revisions addressing these requirements; 
others will be addressed in future actions. Moreover, the ozone ROP and 
attainment plans depend upon the successful adoption and implementation 
of well over 100 State and local rules. EPA will approve or disapprove 
individual rules relating to each local plan after the State submits 
the rules and EPA deems them complete.
    EPA believes that the law requires and the public expects that the 
responsible California State and local agencies will honor all of their 
clean air commitments in these ozone plans, and will consistently 
pursue reasonable and aggressive plan implementation until the clean 
air goals are reached. Nevertheless, the Act does allow the State to 
amend the SIPs in the future, both with respect to the technical 
foundations of the demonstrations and the specific mix of control 
measures chosen for achieving progress and attainment. State and local 
agencies have the flexibility to make changes as necessary and 
appropriate to improve the plans, but EPA will fulfill the Agency's 
responsibilities under section 110(l) of the CAA, which provides that 
``the Administrator shall not approve a revision of a plan if the 
revision would interfere with any applicable requirement concerning 
attainment and reasonable further progress * * * or any other 
applicable requirement of the Act.''

C. Affected Areas

    When California's ozone nonattainment areas were first classified 
under the 1990 CAAA, 9 areas were classified as moderate and above, and 
therefore subject to the progress and attainment requirements. The San 
Francisco Bay Area was later redesignated to attainment (60 FR 27028, 
May 22, 1995). CARB has also submitted a request to redesignate the 
Monterey Bay Area to attainment. EPA will act on the Monterey 
redesignation in the near future.
    This proposal addresses ROP and attainment plans submitted for all 
of the remaining nonattainment areas. These areas are the South Coast 
(classified as extreme), the Southeast Desert (comprising the Mojave, 
Coachella/San Jacinto, and Antelope Valley areas, severe-17), Ventura 
(severe-15), Sacramento (severe-15), San Diego (serious), San Joaquin 
Valley (serious), and Santa Barbara (moderate). The boundaries for 
these areas are set forth at 40 CFR 81.305.
    Since a number of the State's measures apply throughout California 
and thus contribute both toward attainment and maintenance of the ozone 
NAAQS, the SIP submittal and EPA's proposed approval actions affect all 
areas in the State.

D. The California Ozone Plans

1. SIP Submittals
    On November 15, 1993, in response to the 15% ROP requirements of 
section 182(b)(1)(A) of the Act, CARB submitted plans for all of the 
areas addressed in this notice. These submittals have been superseded 
by revised ROP plans submitted one year later.
    On November 15, 1994, CARB submitted a revision to the ``State of 
California Implementation Plan for Achieving and Maintaining the 
National Ambient Air Quality Standards'' (SIP) under cover letter from 
James Boyd (CARB) to Felicia Marcus (EPA). This SIP revision includes 
documentation that the public involvement and adoption requirements of 
the CAA have been met at both the State and local level.
    The revision itself consists of: (a) The State's comprehensive 
ozone plan, including the State's own measures and the State's 
summaries of, and revisions to, the local plans; (b) the State's 
previously adopted regulations for consumer products and reformulated 
gasoline and diesel fuels; and (c) local plans addressing the ozone 
attainment demonstration and ROP requirements.
    The ozone SIP submittal includes the following separate documents:

(a) The State's Comprehensive Ozone Plan

    ``The 1994 California State Implementation Plan for Ozone,'' 
volumes I-IV. The November 15, 1994, submittal letter refers to other 
submittals, described below, as completing the 1994 California Ozone 
SIP. Volume I provides an overview of the entire submittal; Volumes II 
and III include the State's measures for mobile sources, consumer 
products, and pesticides; and Volume IV treats the local plans. On 
December 29, 1994 and February 7, 1995, the State submitted updates to 
these documents, incorporating changes made by CARB at the time of 
adoption, and providing other technical and editorial corrections.

(b) The State's Adopted Regulations

    (1) The California Antiperspirants and Deodorants regulations and 
Consumer Products regulations, as contained in Title 17 of the 
California Code of Regulations, Sections 94507-94517, adopted on 
December 27, 1990, August 14, 1991, and September 21, 1992.
    (2) The California Diesel Fuel regulations, as contained in Title 
13 of the California Code of Regulations, Sections 2281 and 2282, 
adopted on August 22, 1989, June 21, 1990, April 15, 1991, October 15, 
1993, and August 24, 1994.
    (3) The California Reformulated Gasoline regulations, as contained 
in Title 13, of the California Code of Regulations, Sections 2250, 
2252, 2253.4, 2254, 2257, 2260, 2262.1, 2262.2, 2262.3, 2262.4, 2262.5, 
2262.6, 2262.7, 2263, 2264, 2266-2272, 2296, and 2297, initially 
adopted by CARB on November 17, 1988, and formally adopted on August 
22, 1989, June 21, 1990, April 15, 1991, October 15, 1993, and August 
24, 1994.

(c) Local Ozone Progress and Attainment Plans

    (1) ``1994 Clean Air Plan for Santa Barbara County.'' The submittal 
letter for this plan is from James Boyd to Regional Administrator 
Felicia Marcus and is dated November 14, 1994.
    (2) ``1994 Ozone Attainment and Rate-of-Progress Plans for San 
Diego County.''
    (3) ``San Joaquin Valley Attainment and Rate-of-Progress Plans.'' 
On December 28, 1994, the State submitted the ``Rate-of-Progress and 
Attainment Demonstration Plans for the Kern County Air Pollution 
Control District,'' applicable to the Kern desert portion of the San 
Joaquin Valley nonattainment area.
    (4) ``Sacramento Area Proposed Attainment and Rate-of-Progress 
Plans.'' On December 29, 1994, the State replaced this with the 
``Sacramento Area Attainment and Rate-of-Progress Plans.''
    (5) ``1994 Air Quality Management Plan for Ventura County.''
    (6) ``Rate-of Progress and Attainment Demonstration Plans for the 
Mojave Desert.''
    (7) ``1994 Air Quality Management Plan for South Coast Air Basin, 
Antelope Valley and Coachella/San Jacinto Planning Area.''
    On December 29, 1994, the State submitted the ``Rate-of-Progress 
Plan Revision: South Coast Air Basin &

[[Page 10926]]
Antelope Valley & Coachella/San Jacinto Planning Area.'' 1

    \1\ Antelope Valley and Coachella/San Jacinto Planning Area are 
portions of the Southeast Desert Modified Air Quality Management 
Area under the jurisdiction of the South Coast Air Quality 
Management District.
---------------------------------------------------------------------------

    On March 30, 1995, CARB submitted revised 1990 base year emission 
inventories for each of the California ozone nonattainment areas.
    On June 30, 1995, CARB submitted descriptive materials relating to 
the State's motor vehicle inspection and maintenance program, adopted 
by the California Bureau of Automotive Repair.
    On January 22, 1996, CARB submitted the motor vehicle inspection 
and maintenance regulations adopted by the California Bureau of 
Automotive Repair.
2. EPA Completeness Findings
    On January 30, 1995, EPA issued a finding of completeness under 
Section 110(k)(1) of the Act for the following portions of the 
California ozone SIP submittal: Diesel Fuel Regulations; Reformulated 
Gasoline Regulations; CARB Measures M2, M3, M5, M8, M9, M11, CP-2, CP-
3, CP-4, Additional Measures; and SCAQMD Long Term Measures ADV-CTS-01/
02, ADV-FUG, ADV-PRC, ADV-UNSP. These elements of the revision were 
found complete based on EPA's completeness criteria that are set forth 
in 40 CFR Part 51 Appendix V.2

    \2\ 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).
---------------------------------------------------------------------------

    On April 18, 1995 the EPA issued a finding of completeness for the 
remaining portions of the November and December 1994 submittals with 
regard to: (1) attainment and post-1996 RFP requirements at section 
182(c)(2) of the Act; (2) 15% ROP requirement of section 182(b)(1)(A); 
(3) attainment requirement for moderate areas (Santa Barbara) as 
described at Section 182(b)(1)(A); and (4) 1990 base year inventory 
requirements of section 182(a)(1).
    On June 30, 1995, EPA issued a finding of completeness for the 
State's submittal of revisions to the State's I/M program.
    On February 5, 1996, EPA issued a finding of completeness for the 
State's I/M regulations.

E. Related SIP Approvals

    On February 14, 1995, the EPA Administrator signed documents taking 
the following approval actions relating to the California ozone SIP:
    (1) Final approval of the CARB Antiperspirants and Deodorants 
regulations, Consumer Products regulations, Diesel Fuel regulations, 
and Reformulated Gasoline regulations, as submitted on November 15, 
1994.
    (2) Interim final approval of CARB and SCAQMD New-Technology 
Measures, submitted as part of the South Coast ozone SIP on November 
15, 1994. The measures were approved under the provisions of section 
182(e)(5) of the CAA, which authorizes the Administrator to approve 
fully and credit as part of an extreme ozone area SIP conceptual 
measures dependent upon new control technologies or new control 
techniques. The specific measures approved are:
    (a) CARB Measure M2, Improved Control Technology for Light-Duty 
Vehicles, for adoption in the year 2000 and implementation in 2004-5.
    (b) CARB Measure M9, Off-Road Diesel Equipment, 2.5 grams per brake 
horsepower-hour (g/bhp-hr) NOX standard, for adoption in 2001 and 
implementation in 2005.
    (c) CARB Measure CP-4, Consumer Products Advanced Technology and 
Market Incentives, for adoption in 2005 and implementation in 2009.
    (d) CARB Additional Measures, for adoption and implementation by 
2009-2010.
    (e) SCAQMD Measure ADV-CTS-01, Advance Technology-CTS (Coating 
Technologies), for adoption in 2003.
    (f) SCAQMD Measure ADV-FUG, Advanced Technology-Fugitives, for 
adoption in 2003.
    (g) SCAQMD Measure ADV-PRC, Advance Technology-Process Related 
Emissions, for adoption in 2003.
    (h) SCAQMD Measure ADV-UNSP, Advance Technology-Unspecified, 
Stationary Sources, for adoption in 2003.
    (i) SCAQMD Measure ADV-CTS-02, Advance Technology-CTS (Coatings 
Technologies).
    (3) Proposed approval of CARB's mid-term control measures: Measures 
M3, Accelerated Ultra-Low Emission Vehicle (ULEV) requirement for 
Medium-Duty Vehicles, for adoption in 1997 and implementation in 1998; 
M5, Heavy-Duty Vehicle NOX regulations, for adoption in 1997 and 
implementation in 2002; M8, Heavy-Duty Gasoline Vehicles lower 
emissions standards, for adoption in 1997 and implementation in 1998; 
M11, Industrial Equipment, Gas and LPG, for adoption in 1997 and 
implementation in 2000; and CP2, Mid-Term Consumer Products, for 
adoption in July 1997.
    These actions were taken in conjunction with issuance of ozone 
Federal Implementation Plans (FIPs) for the South Coast, Ventura, and 
Sacramento, and a carbon monoxide FIP for the South Coast. Prior to 
publication of the FIP and SIP actions in the Federal Register, 
legislation was enacted mandating that these FIPs ``shall be rescinded 
and shall have no further force and effect'' (Public Law 104-6, Defense 
Supplemental Appropriation, H.R. 889, enacted April 10, 1995).
    On August 21, 1995, EPA announced the rescission of the FIPs (60 FR 
43468), and reissued the final and interim final SIP approvals (60 FR 
43379) and the proposed SIP approvals (60 FR 43421) referenced above. 
On December 14, 1995 (60 FR 64126), EPA issued the final SIP approval 
of the State's mid-term control measures (M3, M5, M8, M11, and CP-2).

II. Review of the State Submittal

    On October 7, 1994 the State published a public notice regarding 
its adoption hearings, to begin on November 9, 1994. Those hearings 
were extended to November 14 and 15, at which time CARB adopted and 
submitted the documents listed above (section I.C.).
    The local elements of the State plan were the product of plan 
development, public review and adoption processes conducted in each 
nonattainment area. Following adoption by the local air pollution 
control boards, the local plans were submitted to CARB, which amended 
the plans and incorporated them into the overall California Ozone SIP.
    This document discusses the State's submittal in terms of 3 broad 
categories: measures which the State has adopted, or enforceably 
committed to adopt (section II.A.); measures assigned by the State to 
the Federal government (section II.B.); and local ROP and attainment 
plans and measures (section II.C.).

A. State Measures

    Statewide elements of the ozone progress and attainment plans 
include measures to control mobile sources, consumer products, and 
pesticides. These control measures consist of existing adopted rules, 
commitments to adopt rules between 1995 and 1997, and long-term 
measures scheduled for regulatory adoption in the year 2000 or later.
1. Mobile Sources Measures
    a. Introduction. According to data from CARB, mobile sources (on-
road and non-road) account for more than 60 percent of ozone precursor 
emissions in California. Therefore, further reductions in mobile source 
emissions are essential if attainment of the NAAQS for ozone is to be 
achieved.

[[Page 10927]]

    CARB has an existing statewide control program for mobile source 
emissions, which is expected to achieve significant reductions in 
emissions in the ozone nonattainment areas of the State. A key element 
of this existing control program is the Low-Emission Vehicle/Clean 
Fuels (LEV) program which was originally adopted in 1990 and has been 
amended several times since. The LEV program aims to reduce emissions 
from future light- and medium-duty vehicles. The program contains 
several categories of vehicle emission requirements. Increasingly 
stringent fleet average requirements must be met by vehicle 
manufacturers beginning in 1994. In addition, the LEV program requires 
manufacturers to introduce increasing percentages of zero-emission 
vehicles (ZEVs), beginning with two percent in 1998 (Title 13, 
California Code of Regulations, Section 1960.1).
    Other CARB-adopted mobile source control measures include the 
California Diesel Fuel Regulations and the California Reformulated 
Gasoline regulations. Both of these fuel regulations were originally 
adopted in 1989 and frequently amended. As discussed above, EPA 
approved the diesel and reformulated gasoline regulations on August 21, 
1995 (60 FR 43379).
    Beginning in 1988, CARB also adopted the following important sets 
of mobile source regulations:
    (1) Emission standards for diesel farm and construction equipment 
over 175 hp;
    (2) revised evaporative emission test procedures;
    (3) Phase 2 on-board diagnostics (OBD) provisions;
    (4) Revised emission standards for medium-duty vehicles (MDVs) and 
light-heavy-duty vehicles (LHDVs); and
    (5) Requirements for utility engines and off-highway recreational 
vehicles/engines.
    In addition to the adopted measures, the State has committed in the 
1994 California Ozone SIP to future adoption of a series of mobile 
source measures. The commitments fall chronologically into two 
categories with regard to the adoption schedule: mid-term commitments 
to be adopted during the 1995-1997 time frame, and long-term measures 
scheduled for adoption in the year 2000 or later.
    The long-term measures are relied upon only in the South Coast Air 
Basin. The South Coast is the only area in the country classified as 
extreme for ozone, and is subject to section 182(e)(5) of the Act, 
which authorizes EPA to credit conceptual measures using new 
technologies or control techniques if they are not needed for meeting 
the first 10 years of ROP (see section II.C.7.e.(1).).
    The following is a description of the State's mobile source 
measures, or M Measures, and EPA's approval actions on the measures.
b. Review of Measures
    (i) M1--Accelerated Retirement of Light-Duty Vehicles. The SIP 
commits to adopt this measure in 1996 and implement it from 1996 to 
2010. Responsibility for implementing this measure may be shared 
between CARB and regional air districts. In this measure, CARB commits 
to the annual retirement (scrappage or removal) of up to 75,000 older, 
high-emitting vehicles in the South Coast Air Basin only, beginning in 
1999. A smaller number of vehicles will be retired between 1996 and 
1998 in order to gain experience with the program. CARB estimates that 
$1,000 per car will be required to cover costs associated with vehicle 
purchase and program administration. CARB committed in the SIP to 
secure a financing mechanism for the program by the end of 1995, and 
legislative efforts to do so have been partially successful. While all 
critical near-term revenues should be obtained now, the State also 
should begin to pursue long-term support for the program. CARB must 
also ensure that implementation and monitoring of the measure prevents 
double-counting of reduction credits, since scrappage is also a feature 
of the State's I/M program and emission reduction credits from 
scrappage may be claimed as emission reduction credits in trading 
programs.3

    \3\ These concerns were expressed in a letter from David P. 
Howekamp, Director, Air & Toxics Division, USEPA Region 9, to James 
D. Boyd, Executive Officer, CARB, dated June 15, 1995, on follow-up 
issues to a June 9, 1995 meeting between CARB, USEPA, and the 
Western States Petroleum Association (WSPA).
---------------------------------------------------------------------------

    While M1 is a commitment to implement an accelerated vehicle 
retirement program only in the South Coast, the SIP states that 
``implementation of light-duty vehicle retirement programs in other 
non-attainment areas will be considered as a means of further reducing 
emissions'' (Vol. II, p. B-2).
    The emission reductions to be achieved in the South Coast by the 
measure are displayed by year in the table below, labeled ``Reductions 
from California Mobile Source Measure M1.''

   Reductions From California Mobile Source Measure M1 South Coast Air  
                                  Basin                                 
                             [Tons per day]                             
------------------------------------------------------------------------
                                 1999   2002   2005   2007   2008   2010
------------------------------------------------------------------------
ROG...........................      5      8     11     12     13     14
NOX...........................      4      6      9     10     10     11
------------------------------------------------------------------------

    (ii) M2--Improved Control Technology for Light-Duty Vehicles. CARB 
commits to adopt this measure in 2000 and begin implementation in 2004-
2005. This measure will achieve emission reductions from LDVs through 
the use of one or more market-based and/or technology-forcing 
approaches. Emission reductions may be achieved through: (1) cost-
effective gasoline engine control technology to meet or exceed Ultra 
Low-Emission Vehicle (ULEV) standards in the post-2003 time frame; (2) 
ZEV sales in excess of the 10% requirement beyond 2003; and/or (3) 
availability of advanced hybrid electric vehicles with emissions 
substantially lower than ULEVs. The SIP indicates that market forces 
(e.g., incentives) and/or emission standards may be used to achieve the 
emission reductions. Emission reductions associated with this measure 
are relied upon in the South Coast only. The emission reductions to be 
achieved in the South Coast by the measure are displayed by year in the 
table below, labeled ``Reductions from California Mobile Source Measure 
M2.''

[[Page 10928]]


   Reductions From California Mobile Source Measure M2 South Coast Air  
                                  Basin                                 
                             [Tons per day]                             
------------------------------------------------------------------------
                                 1999   2002   2005   2007   2008   2010
------------------------------------------------------------------------
ROG...........................      0      0      3      7      6     10
NOX...........................      0      0      5      9      9     15
------------------------------------------------------------------------

    On August 21, 1995, EPA approved this measure under the provisions 
of section 182(e)(5) of the Act.
    (iii) M3--Accelerated Ultra-Low Emission Vehicle (ULEV) Requirement 
for Medium-Duty Vehicles (MDVs). CARB commits in the SIP to adopt 
regulations for this measure in 1997, with implementation occurring 
from 1998 to 2002. This measure commits to an increase in the fraction 
of MDV ULEVs from 10 percent of sales of new MDVs in the 1998 model 
year to 100 percent in the 2002 and later model years. CARB believes 
that the emission reductions associated with this measure can be 
achieved by applying advancements in LDV emission control technologies 
to the medium-duty fleet. This measure offers some flexibility by 
allowing other mixes of vehicles and technologies that generate 
equivalent emission reductions. The emission reductions to be achieved 
by the measure are displayed by nonattainment area and milestone/
attainment year in the table below, labeled ``Reductions from 
California Mobile Source Measure M3.''

                                                   Reductions From California Mobile Source Measure M3                                                  
                                                                     [Tons per day]                                                                     
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                          1999              2002              2005             2007            2008            2010     
                                                   -----------------------------------------------------------------------------------------------------
                                                      ROG      NOX      ROG      NOX      ROG      NOX      ROG     NOX     ROG     NOX     ROG     NOX 
--------------------------------------------------------------------------------------------------------------------------------------------------------
So. Coast.........................................      0        1        1       10        2       21    ......  ......       2      27       3      33
SE Desert.........................................      0        0.1      0.1      1.4      0.2      3.5     0.3     4.1                                
Ventura...........................................      0        0        0        0.5      0.1      1.0                                                
Sacramento........................................      0        0.2      0        1.7      0.4      3.9                                                
S. Joaquin........................................      0        0.4                                                                                    
S. Diego..........................................      0.9      6.5                                                                                    
--------------------------------------------------------------------------------------------------------------------------------------------------------

    EPA proposed to approve M3 on August 21, 1995, and finalized 
approval on December 14, 1995 (60 FR 64126).
    (iv) M4--Heavy-Duty Diesel Vehicles (HDDV); Early Introduction of 
2.0 g/bhp-hr NOX engines. The SIP commits to implementation of 
this measure beginning in 1996. CARB and the Districts share 
responsibility for this measure. M4 is a commitment to increase the use 
of existing low-emission engines among on-road HDDVs through locally 
implemented demand-side programs and market incentives. This program is 
intended to result in a 5% sales penetration of 2.0 g/bhp-hr NOX 
engines through the period 1996-1999, and a 10% sales penetration of 
these engines between 2000 and 2002. Other combinations of penetrations 
and emission levels that provide equivalent emission reductions could 
be implemented. The emission reductions to be achieved in the South 
Coast by the measure are displayed by year in the table below, labeled 
``Reductions from California Mobile Source Measure M4.''

 Reductions From California Mobile Source Measure M4 (in South Coast Air
                      Basin in Tons per Day of NOX)                     
------------------------------------------------------------------------
     1999           2002           2005           2008          2010    
------------------------------------------------------------------------
2.17.........       3.90           2.93           2.34           1.36   
------------------------------------------------------------------------

    (v) M5--Heavy-Duty Diesel Vehicles (HDDVs); Additional NOX 
Reductions. The SIP commits to adopt this measure in 1997 and begin 
implementation in 2002. CARB commits to achieve emission reductions 
through adoption of a 2.0 g/bhp-hr NOX emissions standard for new 
HDDV engines sold in California beginning in 2002, or by implementation 
of alternative measures which achieve equivalent or greater reductions. 
Alternatives under consideration include expanded introduction of 
alternative-fueled and low-emission HDDV engines through demand-side 
programs and incentives, retrofit of aerodynamic devices, reduced 
idling, and speed reduction. The emission reductions to be achieved by 
the measure are displayed by nonattainment area and milestone/
attainment year in the table below, labeled ``Reductions from 
California Mobile Source Measure M5.''

                                                   Reductions from California Mobile Source Measure M5                                                  
                                                                     [Tons per day]                                                                     
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                          1999              2002              2005             2007            2008            2010     
                                                   -----------------------------------------------------------------------------------------------------
                                                      ROG      NOX      ROG      NOX      ROG      NOX      ROG     NOX     ROG     NOX     ROG     NOX 
--------------------------------------------------------------------------------------------------------------------------------------------------------
So. Coast.........................................      0        0        0.2      1.7      1.8     22.0  ......  ......     3.1    37.6     4.8    56.2
SE Desert.........................................      0        0        0        0.2      0.2      3.9     0.4     5.1                                
Ventura...........................................      0        0        0        0.1      0.1      1.0                                                
Sacramento........................................      0        0        0        0.2      0.2      2.7                                                
S. Joaquin........................................      0        0                                                                                      
S. Diego..........................................      0.7      8.3                                                                                    
--------------------------------------------------------------------------------------------------------------------------------------------------------


[[Page 10929]]

    This measure is designed to achieve emission reductions prior to 
the introduction of a potential national 2.0 g/bhp-hr NOX standard 
in 2004. The 1994 California Ozone SIP (``Federal Measure'' M6) assigns 
to EPA responsibility for adopting such a national standard (see 
discussion in section II.B.).
    Significant progress toward fulfilling the M5 and M6 commitments 
has been made by CARB, EPA, and truck and engine manufacturers. On 
March 30, 1995, EPA signed a Memorandum of Understanding with CARB to 
undertake a joint effort to develop a national program for controlling 
NOX, PM, and HC emissions from onroad and nonroad heavy-duty 
engines. This joint effort will involve sharing technology development 
and information, resources, and expertise.
    Further, on July 11, 1995, CARB, EPA, and members of the Engine 
Manufacturers Association signed a Statement of Principles (SOP) 
detailing their agreement on future NOX, HC, and PM standards for 
heavy-duty engines. The goal of the SOP is to reduce NOX emissions 
from onroad HDEs to approximately 2 g/bhp-hr beginning in 2004. This 
will be achieved by giving manufacturers the flexibility to choose 
between two options: (1) A combined non-methane hydrocarbon (NMHC) plus 
NOX standard of 2.4 g/bhp-hr and (2) a combined NMHC plus NOX 
standard of 2.5 g/bhp-hr together with a NMHC cap of .5 g/bhp-hr. 
Signatories will work to achieve low emissions throughout the life of 
the engine. EPA expects that this combined standard will result in 
NOX reductions comparable to those achieved with a 2 g/bhp-hr 
standard and significant reductions in HC emissions.
    With respect to California standards, the SOP included the 
following provision: ``Both EPA and California recognize the benefits 
of harmonizing state and federal regulations. California confirms its 
intent to notice a public hearing to consider actions to harmonize its 
regulations * * * with the federal regulations adopted under this SOP, 
provided such action would not compromise California's obligations to 
comply with state and federal law including the SIP.''
    On August 31, 1995, EPA published the SOP in an Advance Notice of 
Proposed Rulemaking (ANPRM). The ANPRM invited public comment on 
national controls for onroad heavy-duty engines consistent with the 
SOP, and also described EPA's plans to work cooperatively with engine 
and equipment manufacturers to consider additional reductions from 
nonroad heavy-duty engines (see 60 FR 45580-45604).
    EPA proposed to approve M5 on August 21, 1995, and finalized 
approval on December 14, 1995 (60 FR 64126).
    (vi) M7--Accelerated Retirement of Heavy-Duty Vehicles. CARB 
commits to adopt this measure in 1996 and begin implementation in the 
same year. This measure involves the annual retirement (scrapping or 
removal) of about 1600 of the oldest, high emitting trucks in the South 
Coast Air Basin, beginning in 1999. A smaller number of trucks would be 
scrapped in 1996 to 1998 in order to gain experience with the program 
and determine the impacts on the used truck market. Incentives are 
expected to be provided to operators of older trucks in return for 
retirement and purchase of a newer, lower-emitting model. The 
incentives may take the form of guaranteed low interest loans, 
subsidies, or both. The SIP commits to secure a financing mechanism for 
this measure by the end of 1995. While the SIP commits only to 
implement this measure in the South Coast, the State indicates that 
consideration is being given to establishing a truck retirement program 
in Sacramento and other nonattainment areas. The emission reductions to 
be achieved in the South Coast by the measure are displayed by year in 
the table below, labeled ``Reductions from California Mobile Source 
Measure M7.''

   Reductions From California Mobile Source Measure M7 South Coast Air  
                                  Basin                                 
                             [Tons per day]                             
------------------------------------------------------------------------
                                 1999   2002   2005   2007   2008   2010
------------------------------------------------------------------------
ROG...........................      0      1      1      1      1      1
NOX...........................      3      6      7      8      9     10
------------------------------------------------------------------------

    (vii) M8--Heavy-Duty Gasoline Vehicles (HDGVs), Lower Emission 
Standards. The SIP commits to adoption of this measure by 1997 and 
implementation beginning in 1998. This measure generates emission 
reductions through the adoption of a LEV/ULEV program for HDGV engines 
to obtain 50% reductions of NOX and ROG emissions through the 
application of 3-way catalyst technology. The emission reductions to be 
achieved by the measure are displayed by nonattainment area and 
milestone/attainment year in the table below, labeled ``Reductions from 
California Mobile Source Measure M8.''

                                                   Reductions From California Mobile Source Measure M8                                                  
                                                                     [Tons per day]                                                                     
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                          1999              2002              2005             2007            2008            2010     
                                                   -----------------------------------------------------------------------------------------------------
                                                      ROG      NOX      ROG      NOX      ROG      NOX      ROG     NOX     ROG     NOX     ROG     NOX 
--------------------------------------------------------------------------------------------------------------------------------------------------------
So. Coast.........................................      0        0        0        0.8      0.1      1.8  ......  ......     0.2     2.3     0.3     3.0
SE Desert.........................................      0        0        0        0.1      0        0.3       0     0.4                                
Ventura...........................................      0        0        0        0        0        0.1                                                
Sacramento........................................      0        0        0        0.2      0        0.4                                                
S. Joaquin........................................      0        0                                                                                      
S. Diego..........................................      0.1      0.5                                                                                    
--------------------------------------------------------------------------------------------------------------------------------------------------------


[[Page 10930]]

    EPA proposed to approve M8 on August 21, 1995, and finalized 
approval on December 14, 1995 (60 FR 64126).
    (viii) M9--Off-road Diesel Equipment; 2.5 g/bhp-hr NoX 
Standard, California. CARB commits to adopt this measure in 2001 and 
begin implementation in 2005. The measure requires CARB to adopt a 2.5 
g/bhp-hr NOX standard effective in the 2005 model year for new 
off-road industrial equipment diesel engines not primarily used in 
construction and farm equipment. California is preempted from adopting 
or enforcing any standard or other requirement relating to the control 
of emissions from new construction and farm equipment or vehicles which 
are smaller than 175 hp (see section 209(e) of the Act). The SIP 
anticipates that this emissions standard can be achieved through the 
transfer of cost-effective on-road diesel engine control technology to 
new off-road engines. These control technologies include improved 
engine design (especially in fuel/air management and delivery), exhaust 
gas recirculation, and exhaust gas aftertreatment. The technology used 
to meet the 2.5 g/bhp-hr NOX standard will also further reduce ROG 
emissions from post-2005 new engines. The SIP only relies on this 
measure in the South Coast. The emission reductions to be achieved in 
the South Coast are displayed by year in the table below, labeled 
``Reductions from California Mobile Source Measure M9.''

   Reductions From California Mobile Source Measure M9 South Coast Air  
                                  Basin                                 
                             [Tons per day]                             
------------------------------------------------------------------------
                                 1999   2002   2005   2007   2008   2010
------------------------------------------------------------------------
ROG...........................      0      0      0      4      1      3
NOX...........................      0      0      4     35     14     34
------------------------------------------------------------------------

    On August 21, 1995, EPA approved M9 under the provisions of section 
182(e)(5).
    (ix) M11--Industrial Equipment; Gas and LPG-California; 3-way 
catalyst technology. CARB commits to adopt this measure in 1997 and 
implement it beginning in 2000. The measure requires CARB to adopt 
emission standards for new gas and liquid petroleum gas (LPG) engines 
25 to 175 horsepower that are not primarily used in construction or 
farm equipment. As noted above, California is preempted from regulating 
new farm and construction equipment smaller than 175 hp). The standards 
will be phased-in 2000 and will be based on the use of closed-loop 3-
way catalyst systems. The catalyst systems are expected to reduce ROG 
emissions by 75% and NOX by at least 50%.

  Reductions From California Mobile Source Measure M11 South Coast Air  
                                  Basin                                 
                             [Tons per day]                             
------------------------------------------------------------------------
                                 1999   2002   2005   2007   2008   2010
------------------------------------------------------------------------
ROG...........................      0      4      9   [  ]     15     23
NOX...........................      0      2      4   [  ]      8     12
------------------------------------------------------------------------

    EPA proposed to approve M11 on August 21, 1995, and finalized 
approval on December 14, 1995 (60 FR 64126).
    (x) Additional New Control Technologies. In addition to the new 
control technologies described above in measures M2 and M9, CARB has 
committed to the implementation of additional innovative measures to 
achieve the emission reductions needed in the South Coast to reach 
attainment by 2010. CARB anticipates that these additional measures 
will include a combination of market-based and technology-based 
measures. CARB has committed to adoption of these measures no later 
than 2006 to ensure the needed emissions reductions are achieved by 
2009. Table 5 (on page I-21) of Volume II of the 1994 California Ozone 
SIP lists the following strategies that may be pursued to meet the 
emission reduction targets:
A. Possible New Control Technologies
     Introduction in fleets of ultra-low emitting heavy-duty 
trucks, post-2003
B. Possible Market-Incentive Measures
     Incentives to purchase or produce ``cleaner'' technology/
vehicles
     Incentives to encourage retrofits of emission control 
technology
     Incentives for alternative fuel conversions
     Incentives to promote the development of alternative fuel 
infrastructure
     Revise tax rate structure to promote investment in low-
emission technology
     Provide opportunity for low-interest loans
     Preferred state vendor/contract bid status
     Company emission averages
     Air basin emission averages
     Mobile source emission reduction credit/trading programs
C. Possible Operational Measures Applicable to Heavy-Duty Vehicles
     Longer combination vehicles on selected routes
     Increased gross vehicle weight
     Better enforcement of the 55 mile-per-hour speed limit
     Reduced idling time
     Reexamine trailer package concept for local deliveries
     Aerodynamic devices for all power units and trailers
     Other (intermodal transportation, advanced traffic 
control/tracking technology, alternative fuel for existing fork lifts)
    The SIP states that this list of new control technologies is not 
exhaustive and indicates that other new control technologies and 
techniques are possible and will be considered as potential sources of 
emission reductions. Additional control options mentioned in the SIP 
include: pricing to affect the amount of travel and related emissions 
(such as congestion pricing or an emission index based on per mile 
emissions and VMT); retrofit technologies which reduce emissions; 
additional use of alternative fuels; and episodic controls such as 
speed reduction and idling curtailment. CARB has committed to further 
define and quantify these measures and to adopt them by 2006 for 
implementation by

[[Page 10931]]
2009. On August 21, 1995, EPA approved CARB's additional new control 
technologies measure under the provisions of section 182(e)(5).
    c. EPA Action. As described in section I.D. above, EPA has already 
approved or proposed to approve many of the State's M Measure 
commitments. On August 21, 1995, EPA approved the CARB new-technology 
measures M2, M9, and Additional New Technology Measures (described 
above), and assigned credit in the South Coast ozone attainment 
demonstration to the measures. At the same time, EPA proposed approval 
of the State's control measure commitments for M3, M5, M8, and M11. EPA 
issued finalized approval of the measures on December 14, 1995 (60 FR 
64126). Because EPA was at that time not acting on the State's ROP and 
attainment demonstrations, EPA's approval of the State's commitments 
did not include assignment of specific emission reduction credits 
associated with the measures. As discussed below in section II.C., EPA 
is here proposing to approve the ROP and attainment demonstrations of 
California ozone nonattainment area plans, which rely, in part, on the 
M Measure commitments. Therefore, EPA now proposes to assign credit to 
the State's enforceable commitments to achieve the specific emission 
reductions associated with M3, M5, M8, and M11, and displayed in the 
tables above for each measure.
    EPA is also proposing to approve, under sections 110(a)(3) and 
301(a) of the Act, and assign credit to measures M1, M4, and M7 as part 
of the ROP and attainment demonstrations for appropriate nonattainment 
areas, as shown in the tables above. EPA believes that CARB is making 
significant progress toward the development and adoption of regulations 
to fulfill the M measure commitments. In several cases, regulations 
have already been adopted or are expected to be adopted prior to EPA's 
final action on the ozone SIPs. EPA therefore proposes to approve and 
credit CARB's enforceable commitments to the M measures under sections 
110(k)(3) and 301(a) of the Act, as part of the demonstrations of ROP 
and attainment in the California ozone nonattainment areas.
2. I/M
    a. Review of Program. CARB submitted its motor vehicle inspection 
and maintenance (I/M) program, known as the Smog Check program, as a 
revision to its SIP on June 30, 1995. The submittal was made to fulfill 
EPA's requirements for basic and enhanced I/M programs as set forth in 
40 CFR Part 51, Subpart S. EPA found the submittal complete on June 30, 
1995. A supplemental revision to the SIP was submitted by the State on 
January 22, 1996 and found complete on February 5, 1996. Section 348 of 
the National Highway System Designation Act (Public Law 104-59), 
hereafter referred to as the Highway Act, which was enacted on November 
28, 1995, modified EPA's I/M regulation. In this notice EPA is 
proposing approval of California's basic program as meeting the 
requirements of 40 CFR, Part 51, Subpart S as amended (see 60 FR 48029, 
September 18, 1995) and approval of California's enhanced I/M program 
as meeting the requirements of 40 CFR Part 51, Subpart S, as amended 
and section 348(c) of the Highway Act.
    The table labeled ``California I/M Program Coverage by County'' 
shows for every county in the State whether the I/M program is 
implemented as enhanced or basic, or is required only upon change of 
ownership. For many counties, the type of I/M program in effect varies 
depending upon air quality designations and whether the area is 
urbanized. The State has established these I/M program boundaries 
within counties based upon ZIP code. The reader may contact the Bureau 
of Automotive Repair (BAR) to obtain specific program applicability 
information by ZIP code.

                                    California I/M Program Coverage by County                                   
----------------------------------------------------------------------------------------------------------------
                                                                                                    Change of   
                            County                                 Enhanced          Basic          ownership   
----------------------------------------------------------------------------------------------------------------
Alameda......................................................  ...............               X   ...............
Alpine.......................................................  ...............  ...............               X 
Amador.......................................................  ...............  ...............               X 
Butte........................................................  ...............               X   ...............
Calaveras....................................................  ...............  ...............               X 
Colusa.......................................................  ...............               X   ...............
Contra Costa.................................................  ...............               X   ...............
Del Norte....................................................  ...............  ...............               X 
El Dorado....................................................  ...............               X                X 
Fresno.......................................................               X                X   ...............
Glenn........................................................  ...............               X   ...............
Humboldt.....................................................  ...............  ...............               X 
Imperial.....................................................  ...............  ...............               X 
Inyo.........................................................  ...............  ...............               X 
Kern.........................................................               X                X   ...............
Kings........................................................  ...............               X   ...............
Lake.........................................................  ...............  ...............               X 
Lassen.......................................................  ...............  ...............               X 
Los Angeles..................................................               X   ...............  ...............
Madera.......................................................  ...............               X   ...............
Marin........................................................  ...............               X   ...............
Mariposa.....................................................  ...............  ...............               X 
Mendocino....................................................  ...............  ...............               X 
Merced.......................................................  ...............               X   ...............
Modoc........................................................  ...............  ...............               X 
Mono.........................................................  ...............  ...............               X 
Monterey.....................................................  ...............               X   ...............
Napa.........................................................  ...............               X   ...............
Nevada.......................................................  ...............               X   ...............
Orange.......................................................               X   ...............  ...............
Placer.......................................................               X                X                X 
Plumas.......................................................  ...............  ...............               X 

[[Page 10932]]
                                                                                                                
Riverside....................................................               X                X                X 
Sacramento...................................................               X                X   ...............
San Benito...................................................  ...............               X   ...............
San Bernardino...............................................               X                X                X 
San Diego....................................................               X                X                X 
San Francisco................................................  ...............               X   ...............
San Joaquin..................................................               X                X   ...............
San Luis Obispo..............................................  ...............               X   ...............
San Mateo....................................................  ...............               X   ...............
Santa Barbara................................................  ...............               X   ...............
Santa Clara..................................................  ...............               X   ...............
Santa Cruz...................................................  ...............               X   ...............
Shasta.......................................................  ...............               X   ...............
Sierra.......................................................  ...............  ...............               X 
Siskiyou.....................................................  ...............  ...............               X 
Solano.......................................................               X                X   ...............
Sonoma.......................................................  ...............               X                X 
Stanislaus...................................................               X                X   ...............
Sutter.......................................................  ...............               X   ...............
Tehama.......................................................  ...............               X   ...............
Trinity......................................................  ...............  ...............               X 
Tulare.......................................................  ...............               X   ...............
Tuolumne.....................................................  ...............  ...............               X 
Ventura......................................................               X                X   ...............
Yolo.........................................................               X                X   ...............
Yuba.........................................................  ...............               X   ...............
----------------------------------------------------------------------------------------------------------------


    The SIP revision submitted to EPA by CARB includes the laws and 
regulations relating to California's I/M program which is comprised of 
pertinent sections of the California Business and Profession Code, the 
Civil Code, the Health and Safety Code, the Penal Code, the Revenue and 
Taxation Code, the Welfare and Institutions Code, the Vehicle Code, and 
the Code of Regulations. Included in the supplemental submittal are 
final regulations for the mandatory exhaust emissions inspection 
standards and test procedures for the enhanced program and for the 
licensing of I/M stations and technicians which became legally 
effective on December 1, 1995 and December 5, 1995, respectively. Other 
documents in the submittal are: the Request for Conceptual Design for 
Test-only Networks and Referee Services; the BAR-90 Test Analyzer 
System Specifications (June 1995); the California Smog Check Inspection 
Manual; the Quality Assurance Operations Manual, Chapter 27 of the 
Department of Motor Vehicles Manual of Registration Procedures; the 
Smog Check Diagnostic and Repair Manual; the Request for proposal for 
On-Road Emissions Measurement Systems Services, and the Radian Report 
entitled ``Evaluation of the California Pilot Inspection/Maintenance 
(I/M) Program.''
    EPA's I/M regulation establishes minimum performance standards for 
basic and enhanced I/M programs as well as requirements for the 
following: network type and program evaluation; adequate tools and 
resources; test frequency and convenience; vehicle coverage; test 
procedures and standards; test equipment; quality control; waivers and 
compliance via diagnostic inspection; motorist compliance enforcement 
program oversight; quality assurance; enforcement against contractors, 
stations and inspectors; data collection; data analysis and reporting; 
inspector training and licensing or certification; public information 
and consumer protection; improving repair effectiveness; compliance 
with recall notices; on-road testing; SIP revisions; and implementation 
deadlines. The performance standard for basic I/M programs remains the 
same as it has been since initial I/M policy was established in 1978, 
pursuant to the 1977 amendments to the Clean Air Act. The high 
performance standard for enhanced I/M programs is based on high-
technology loaded mode exhaust testing for HC, CO, and NOX and 
testing of the integrity and performance of the evaporative control 
system.
    California's basic program is a test-and-repair program utilizing 
two-speed idle testing. California's enhanced program is a hybrid 
program in which 15% of the dirtiest vehicles, based upon high-emitter 
profile and remote sensing results as well as other factors, are 
targetted for test-only inspection. All vehicles in the enhanced areas 
will be subject to loaded mode testing. More stringent requirements 
apply to technicians licensed in the enhanced areas. The two programs 
are essentially the same in all other respects, excepting that 
frequency of enforcement related activities such as remote sensing will 
be much greater in the enhanced areas. (A more detailed discussion of 
how the elements of California's I/M programs address the requirements 
of EPA's I/M regulations is contained in the TSD for this notice.) The 
SIP submittal includes modeling which demonstrates that the program 
design for California's basic program will meet EPA's performance 
standard for basic programs. EPA is, therefore, proposing to approve 
this revision to California's SIP for the basic I/M program.
    The Highway Act prohibits the Administrator from disapproving or 
applying an automatic discount of emission reduction credits to a SIP 
revision because the I/M program is decentralized or a test-and-repair 
program. The Highway Act directs the Administrator to propose approval 
of the program for the full credit proposed by the state if the 
proposed credits reflect good faith estimates by the state and the 
revision is otherwise in compliance with the Clean Air Act. The 
approval remains effective for up to 18 months after the date of final 
rulemaking. After the 18-month period,

[[Page 10933]]
permanent approval of the SIP revision based on the credits proposed by 
the state shall be granted if the data collected on the operation of 
the program demonstrates that the credits are appropriate and the 
program is otherwise in compliance with the Act.
    EPA issued guidance regarding approval of I/M plans under the 
Highway Act on December 12, 1995. EPA believes that at least six months 
of program operation are needed in order to evaluate the performance of 
the program. Thus programs must start no later than 12 months after EPA 
takes final rulemaking action. EPA proposes that if the State fails to 
start its program on this schedule, the approval granted under the 
provisions of the Highway Act will convert to a disapproval after a 
finding letter is sent to the state. As mentioned above, the Highway 
Act specifies that EPA grant approval if good faith estimates of 
credits are made. The Conference Report states that good faith 
estimates may be based on previous I/M program performance, remote 
sensing programs, or other evidence relevant to effectiveness of I/M 
programs. EPA has further suggested that good faith estimates could be 
based on innovative program designs. In order to evaluate the program 
EPA believes that a continuous sample collection technique should 
provide sufficient data to determine program effectiveness. Samples may 
be taken in a variety of ways including roadside pullovers and 
randomized call-in programs. EPA plans to issue detailed guidance on 
data collection and analysis after consultation with states and other 
experts. At the end of the 18-month approval period, EPA will take 
action to make the approval of the I/M program permanent, if the 
program evaluation data collected by the state demonstrates that the I/
M program is achieving the emission reduction credits claimed in the 
SIP.
    According to the schedule submitted by California test-only 
inspection began in Sacramento in August 1995. The program is expected 
to be fully operational in Fresno, Bakersfield and San Diego by the 
fall of 1996, and in the South Coast areas in early 1997. California 
has made a good faith estimate that its hybrid enhanced I/M program 
will meet EPA's high performance standard based on the California Pilot 
Program and innovative program features including an electronic 
transmission program, a high visibility remote sensing program, and 
stringent licensing and training requirements.
    The pilot program conducted as part of the Memorandum of Agreement 
between EPA and California provided data on the effectiveness of 
targetting high emitting vehicles through the use of the high-emitter 
profile (HEP) and remote sensing combined with the HEP, and the use of 
Acceleration Simulation Mode (ASM) testing. The vehicles required to go 
to test-only facilities for inspection will be comprised of likely 
high-emitters as identified through use of the HEP and remote sensing, 
previously identified high emitters which must undergo annual testing 
for 2 to 5 years, high emitters identified by test-and-repair stations, 
high mileage fleet vehicles, vehicles for hire, a 2% random sample, and 
motorists voluntarily choosing to go to test-only stations.
    California's program includes an electronic transmission program. A 
central Vehicle Information Database will be created and an electronic 
network enabling the test analyzer system units to connect 
automatically to the database will be established. The central database 
will be able to restrict the issuance of certificates under certain 
circumstances, e.g., if a test-only inspection is required, when the 
vehicle is identified as a high emitter, or when an enhanced test is 
required. The database will also furnish a real-time communications 
link to vehicle emissions data which will provide information to BAR 
enforcement teams to help immediately identify illicit activity. The 
database will also be used to develop a trigger program to identify 
shops that are performing improper inspections and to track the 
location and performance of licensed smog check technicians.
    The State will also be phasing in a high-visibility remote sensing 
program. California plans to identify as least 200,000 high emitting 
vehicles annually in the enhanced program areas. Data collected from 
the program will be use as a target parameter for the enforcement 
program. The program will also serve as a visible reminder to both 
motorists and test-and-repair stations that improper inspections and/or 
program avoidance may be detected. Stringent licensing and training 
requirements are being required for test-and-repair stations and repair 
technicians, respectively.
    California has committed to performing quarterly evaluations of its 
program to determine if EPA's performance standard is being met and the 
credits taken for the program are being achieved. California plans to 
adjust the number of vehicles sent to test-only stations based on these 
evaluations. EPA will work with California to further define 
California's data collection protocols and analysis as EPA's guidance 
on program evaluation is developed.
    b. Emissions Reductions. The emission reductions to be achieved by 
the measure are displayed by nonattainment area and milestone/
attainment year in the table below, labeled ``Reductions from 
California I/M Program.''

                                                     Reductions From California Enhanced I/M Program                                                    
                                                                     [Tons per pay]                                                                     
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                              1999             2002            2005            2007            2008            2010     
                                                       -------------------------------------------------------------------------------------------------
                                                          ROG      NOX      ROG     NOX     ROG     NOX     ROG     NOX     ROG     NOX     ROG     NOX 
--------------------------------------------------------------------------------------------------------------------------------------------------------
So. Coast.............................................     34.8     32.4    40.3    35.5    32.5    33.0  ......  ......    30.2    34.8    26.2    31.1
SE Desert.............................................      2.4      2.3     3.0     2.6     2.9     2.8     2.6     2.8                                
Ventura...............................................      1.6      1.9     1.8     2.0     1.4     1.9                                                
Sacramento............................................      5.4      5.7     6.3     6.5     5.1     6.4                                                
S. Joaquin............................................      4.3      4.9                                                                                
S. Diego..............................................      0        0                                                                                  
--------------------------------------------------------------------------------------------------------------------------------------------------------

    c. EPA Action. EPA is proposing to approve the California I/M 
regulations submitted on January 22, 1996, under sections 110(k)(3) and 
301(a) of the Act as strengthening the SIP and contributing specific 
emission reductions toward the progress, attainment, and maintenance 
requirements of the Act.

[[Page 10934]]

    EPA is also proposing to approve under sections 110(k)(3) and 
301(a) of the Act the California I/M program submitted on June 30, 
1995, and the I/M regulations submitted on January 22, 1996, as meeting 
the requirements of section 182(b)(4) of the Act for basic I/M in 
applicable areas of the State classified as moderate for ozone.
    Finally, under section 348(c) of the Highway Act, EPA is proposing 
to grant approval for a period of 18 months to the California I/M 
submittals of June 30, 1995, and January 22, 1996, as meeting the 
requirements of section 182(c)(3) of the CAA for enhanced I/M in 
applicable areas of the State classified as serious and above for 
ozone. Section 348(c)(3) of the Highway Act provides that EPA will take 
regulatory action to make the approval permanent if, at the expiration 
of the 18-month period or at an earlier time, the data collected on the 
operation of the State program demonstrates that ``the credits are 
appropriate and the revision is otherwise in compliance with the Clean 
Air Act.''
    If the State fails to start its program within 12 months of 
approval, EPA proposes to have the approval convert to a disapproval 
after a finding letter is sent to the State. If the required State 
demonstration is not completed within 18 months or does not show that 
the credits are appropriate and that the program is otherwise in 
compliance with the CAA, EPA will take regulatory action to disapprove 
the program for purposes of compliance with the enhanced I/M 
requirements of section 182(c)(3). In that event, the SIP will no 
longer meet the specific requirements of the Act relating to enhanced 
I/M, but the State's regulations will continue in the SIP as 
contributing to progress, attainment, and maintenance of the NAAQS.
3. Consumer Products
    a. Introduction. ``Consumer products'' are a variety of products 
generally purchased from a retail establishment for household use by 
the end user. These products include: cleaning products, insecticides, 
toiletries, aerosol paints (non-architectural paints are not considered 
consumer products under California environmental law), adhesives, air 
fresheners, cooking sprays, disinfectants, and other common household 
articles that contain volatile organic compounds (VOCs) and are 
considered ``consumption goods''. The term does not refer to consumer 
electronics, furniture, appliances, cooking or serving utensils, 
furnishings, or other items that are considered ``durable goods'', nor 
does the term refer to food items (except cooking sprays), beverages, 
or tobacco products.
    In its 1994 ozone SIP submittal, CARB presents a discussion of the 
State's current and anticipated measures for controlling the VOC 
content of consumer products, and sets forth the claimed emissions 
reductions. CARB classifies the emissions reductions resulting from 
regulations on consumer products regulations into 3 main categories: 
near-term, mid-term, and long-term with regard to date of promulgation 
and implementation.
    CARB's near-term measures are comprised of rules adopted prior to 
May 1995. The existing consumer products regulations, antiperspirant 
and deodorant regulations, and the 1996 and 1999 VOC content standards 
of the recently adopted aerosol paints rule comprise the near-term 
measures.
    CARB's mid-term measures consist of anticipated regulations from 
categories of consumer products for which regulations had not yet been 
adopted at the time of the submittal. These reductions are expected to 
be adopted by July 1, 1997 and implemented by the year 2005, and will 
cover 150 consumer product categories which are currently not regulated 
by the State of California. These mid-term measures are needed for 
attainment demonstrations in the Sacramento Metropolitan and Ventura 
County air basins. In the SIP, CARB asserts that these measures, like 
the near-term measures, rely on available technology.
    CARB has committed to obtaining further reductions (as compared to 
the near- and mid-term measures) from consumer products after 2000. 
These reductions would not rely on available technology, but would 
currently be considered technology forcing. These long-term measures 
would be enforced on a statewide basis, but only the South Coast plan 
relies on the emissions reductions to demonstrate attainment.
    CARB has further categorized their emission reduction commitments 
into 4 classifications, or ``measures'': CP-1, CP-2, CP-3, and CP-4. 
These measures are either adopted rules or commitments to adopt rules 
to reduce VOC emissions from consumer products and aerosol paints. A 
description of each of these measures follows.
b. Adopted Consumer Products Rules
    i. Measure CP-1. Measure CP-1 is comprised of two rules, both 
adopted prior to November 1994, that are designed to control VOC 
emissions from commercial products. One rule controls VOC emissions 
from antiperspirants and deodorants; the other rule controls emissions 
from household products, such as air fresheners, shaving cream, and 
hairsprays. Both rules were submitted to EPA on November 15, 1994. EPA 
approved these rules into the SIP on August 21, 1995 (see 60 FR 43379).
    ii. Measure CP-3 (Aerosol Paints). Measure CP-3 is a near term 
commitment to adopt and implement VOC content standards in aerosol 
paints. Regulations meeting these commitments were adopted in mid-1995. 
These regulations limit the VOC content of aerosol paints by 
establishing sets of VOC content standards for various coating types. 
These standards establish the maximum percentage of VOC by weight 
allowed in the various types of aerosol coatings. The coating standards 
are divided into two phases. In the first phase, which is due to take 
effect January 1, 1996, aerosol coatings' VOC content will have limits 
that range from 60 percent to 95 percent, depending on the coating.
    In the second phase, currently due to take effect December 31, 
1999, aerosol coatings' VOC content limits will range from 30 percent 
to 80 percent, depending on the type of coating. Before the second 
phase of content limits can be implemented, CARB must conduct a public 
hearing to determine if the limits are commercially and technologically 
feasible. If the Board determines that they are not feasible, the 
implementation of some or all of the limits may be postponed for up to 
5 years. However, CARB may not submit the 1999 limits to EPA as a SIP 
revision until after the Board has determined that they are 
technologically and commercially feasible, and is prohibited from doing 
so by section 41712(f)(3) of the California Health and Safety Code.
    EPA approval action on both phases of the aerosol paint rules will 
be taken in separate rulemakings following SIP submittal of the rules.
    c. Mid-Term Committal Measure CP-2. Measure CP-2 is a mid-term 
commitment to adopt additional regulations prior to 1997 to further 
reduce VOC emissions from household consumer products. These reductions 
are anticipated to result from the further regulation of new categories 
of consumer products through technology that is currently feasible and 
commercially viable. EPA proposed to approve CP-2 on August 21, 1995, 
and finalized approval on December 14, 1995 (60 FR 64126).
    d. Long-Term Committal Measure CP-4. Measure CP-4 is a long-term 
measure to further reduce emissions after measures CP-1, CP-2, and CP-3 
are implemented. The control strategies committed to in CP-4 depend on

[[Page 10935]]
advancement of manufacturing technology for consumer products and 
aerosols. On August 21, 1995, EPA approved CARB's Measure CP-4 as 
meeting the requirements of section 182(e)(5).
    e. Alternative Compliance Plans (ACPs). In order to provide 
industry with flexibility in meeting the VOC content limits for aerosol 
paints, CARB has adopted regulations that will allow manufacturers to 
meet the VOC standards on an average basis. The regulations, CARB's 
Alternate Control Plan (ACP) for consumer products and aerosol 
coatings, require that manufacturers carefully track sales and VOC 
content of all products being averaged together in order to determine 
total VOC emissions from their products and compliance with the rule. 
EPA will act on the ACP regulations following submittal by the State.
    f. Emission Reductions. The following table describes the ROG 
emission reductions in terms of tons per day, as identified in the SIP 
submittal. Credits for near-term consumer products (CP-1) are not 
included, since they were presumed in baseline emissions projections as 
adopted regulations. The ROP and attainment demonstrations for San 
Diego, San Joaquin Valley or Santa Barbara do not rely on reductions 
from the consumer products measures, although real reductions will 
occur in those areas. Credits for consumer products and aerosol paints 
(near-term and long-term) are combined. Credit for CP-4 is claimed only 
for South Coast.

 Reductions From California Consumer Products and Aerosol Paint Program 
    [Reductions beyond those achieved by CP-1] [tons per day of ROG]    
------------------------------------------------------------------------
                                 1999   2002   2005   2007   2008   2010
------------------------------------------------------------------------
South Coast...................      0      8   39.2  .....   42.2   89.2
SE Desert.....................      0    0.4    3.5    4.0              
Ventura.......................      0    0.4    2.2                     
Sacramento....................      0    1.1    5.6                     
San Joaquin...................      0                                   
San Diego.....................   16.6                                   
------------------------------------------------------------------------

    g. EPA Action. As discussed above, EPA has already fully approved 
all of the State's consumer products rules and committal measures with 
the exception of CP-3 (Aerosol Paints). EPA is now proposing to approve 
CP-3 under sections 110(k)(3) and 301(a) of the Act, and assign credit 
to this measure, as well as to the previously approved consumer 
products measures, as part of the ROP and attainment demonstrations for 
appropriate nonattainment areas. EPA will take regulatory action on the 
recently adopted ACP and Aerosol Paints regulations themselves in 
separate rulemakings.
4. Pesticides
    a. Review of Measure. California's 1994 SIP submittal includes a 
commitment to reduce VOC emissions from the application of agricultural 
and structural pesticides. The submittal describes relevant authority 
in Section 6220 of Title 3 of the California Code of Regulations that 
has been granted to the California Department of Pesticide Regulation 
(DPR). However, since CARB has overall responsibility for developing 
the SIP, California's pesticide commitment is described in a letter 
from DPR to CARB,4 which CARB then submitted to EPA with the 
balance of the 1994 SIP. In May 1995, California used a similar 
mechanism to clarify technical details of the pesticide 
commitment.5 This clarification is considered part of California's 
SIP.

    \4\ James Wells (DPR) to James Boyd (CARB), dated November 15, 
1994.
    \5\ May 9, 1995 letter from Wells to Boyd under a May 11, 1995 
cover letter from Boyd to Felicia Marcus (EPA).
---------------------------------------------------------------------------

    b. Emission Reductions. As described in the SIP, California has 
committed to adopt and submit to U.S. EPA by June 15, 1997, any 
regulations necessary to reduce VOC emissions from agricultural and 
commercial structural pesticides by specific percentages of the 1990 
base year emissions,6 by specific years, and in specific 
nonattainment areas as listed in the table labeled, ``Reductions from 
1990 Pesticide Emissions Baselines.'' The table labeled ``Reductions 
from Pesticides Measure'' shows reductions counted toward the ROP 
milestones and attainment in each area.

    \6\ In a March 31, 1995 letter from Wells to David Howekamp 
(EPA), California clarified its commitment to limit future VOC 
emissions from pesticides to the target percentages of the 1990 base 
year emissions, regardless of future growth in emissions that might 
otherwise occur. ``Therefore, the proposed 20 percent reduction goal 
could be considered to be greater than 20 percent if one includes 
growth in pesticidal VOC emissions.'' (March 31 letter, page 2.)

                               Reductions From 1990 Pesticide Emissions Baselines                               
----------------------------------------------------------------------------------------------------------------
            Ozone nonattainment area              1996 (percent)  1999 (percent)  2002 (percent)  2005 (percent)
----------------------------------------------------------------------------------------------------------------
Sacramento Metro................................               8              12              16              20
San Joaquin Valley..............................               8              12              16              20
South Coast.....................................               8              12              16              20
Southeast Desert................................               8              12              16              20
Ventura.........................................               8              12              16              20
----------------------------------------------------------------------------------------------------------------


                                       Reductions From Pesticides Measure                                       
                                              [Tons per day of ROG]                                             
----------------------------------------------------------------------------------------------------------------
                                                            1999      2002      2005     2007     2008     2010 
----------------------------------------------------------------------------------------------------------------
South Coast.............................................       1.5       1.6      1.3  .......      1.6      1.7
Southeast Desert........................................       0         0        1.2      1.5  .......  .......

[[Page 10936]]
                                                                                                                
Ventura.................................................       0         0        2.4  .......  .......  .......
Sacramento..............................................       0         0        2.7  .......  .......  .......
San Joaquin.............................................      13    ........  .......  .......  .......  .......
San Diego...............................................       0.2  ........  .......  .......  .......  .......
----------------------------------------------------------------------------------------------------------------


    The pesticide component of California's SIP also describes 
education and outreach programs intended to achieve these emission 
reductions voluntarily. EPA strongly encourages these programs, and 
hopes to work with DPR and the affected industries to make them 
successful. In the event, however, that additional control strategies 
are needed, California's commitment to adopt and submit any necessary 
pesticide regulations is sufficient to ensure those emission reductions 
described in the table labeled, ``Reductions from 1990 Pesticide 
Emissions Baselines.'' 7

    \7\ Note that for purposes of ROP and attainment demonstrations 
in the SIPs, California has not claimed emission reduction credit 
for the 8% pesticide emission reductions planned for 1996.
---------------------------------------------------------------------------

    c. EPA Action. EPA is proposing to approve the Pesticides measure 
under sections 110(k)(3) and 301(a) of the Act, and assign credit to 
the measure as part of the ROP and attainment demonstrations for 
appropriate nonattainment areas. EPA will take regulatory action on the 
State's Pesticides regulations, if any regulations are required and are 
submitted, in separate rulemakings.

B. Federal Assignments

1. State Approach
    In addition to, and in association with, the State's mobile source 
control measures, the 1994 California Ozone SIP sets forth a group of 7 
specific mobile source control measures that the State would not be 
responsible for adopting and implementing.
    These new ``Federal assignments'' and the adoption and 
implementation dates in the California SIP are as follows:
    M6--Heavy-Duty Diesel Vehicles: a national standard of 2.0 g/bhp-
hr, to be adopted in 1997 and implemented in 2004. M10--Off-Road Diesel 
Equipment: a national standard of 2.5 g/bhp-hr, to be adopted in 2001 
and implemented in 2005. M12--Industrial Equipment, Gas and LPG: a 
national standard reflecting application of three-way catalyst systems, 
to be adopted in 1997 and implemented from 2000 to 2004.
    M13--Marine Vessels: national and international standards to reduce 
NOX emissions from new engines by 30 percent, and operational 
controls, including shipping lane changes and vessel speed reduction, 
to be adopted in 1996 and implemented from 1998 to 2001.
    M14--Locomotives: national standards for new and rebuilt locomotive 
engines, along with provisions to ensure that by 2010 locomotive fleets 
in the South Coast Air Basin will emit on average no more than the 2005 
emission level for new locomotives, to be adopted in 1995 and 
implemented from 2000 to 2010.
    M15--Aircraft: national standards to effect a 30 percent reduction 
in ROG and NOX emissions, to be adopted in 1999 and implemented in 
2000.
    M16--Pleasure Craft: national standards (both Phase I and II).
    CARB's decision to place responsibility on the Federal government 
for these controls rests on the State's conclusion that: (1) State and 
local agencies lack the legal authority or practical ability to control 
these source categories; (2) the reductions contributed by the new 
Federal assignments are essential for progress and attainment in 
California; and (3) there are no feasible alternative sources of 
reductions that are available to the State, given the stringent level 
of control of all other source categories reflected in the SIPs.
2. EPA Action
    While EPA does not believe that the CAA authorizes a state to 
assign responsibility to the Federal government for meeting SIP 
requirements, the Agency agrees that it has both the authority and 
responsibility under the Act for regulating certain national sources of 
air pollution. The 1990 Clean Air Act Amendments, in fact, extended 
EPA's authority to regulate nonroad vehicles and engines and expressly 
required EPA to evaluate nonroad engine emissions, determine whether 
these emissions contribute significantly to ozone or CO in areas which 
have failed to attain the ozone or CO NAAQS, and regulate these 
emissions categories if found to be significant. Under this authority, 
EPA completed a Nonroad Engine and Vehicle Emission Study and issued an 
affirmative determination of significance (59 FR 31306, June 17, 1994). 
EPA has also proposed, and in some cases finalized, rules for various 
nonroad vehicles and engines, including several of the California SIP 
``Federal measure'' source categories. The current status of EPA's 
actions on each of the ``Federal measure'' categories is summarized in 
the Appendix to this document.
    EPA recently established a new policy that allows States to 
incorporate into their ROPs and attainment demonstrations the estimated 
emission reductions associated with court-ordered or statutorily-
mandated measures prior to final promulgation of the Federal 
regulations.8 Consistent with this policy, EPA is proposing to 
assign to the California Ozone SIPs emissions reduction credit for 
nonocean-going marine vessels, locomotives, and pleasure craft, based 
on EPA's current estimates of the reductions that will be achieved by 
these national measures. These credits are sufficient, in conjunction 
with those attributed by California to the State and local measures, to 
demonstrate progress and attainment of the ozone NAAQS in all of the 
California ozone nonattainment areas except for the South Coast.

    \8\ This policy (January 30, 1996 memorandum from Mary Nichols, 
Assistant Administrator for Air & Radiation, to EPA Regional 
Administrators, on ``SIP Credits for Federal Nonroad Engine 
Emissions Standards and Certain Other Mobile Source Programs'') 
supersedes EPA's prior policy, expressed in a November 23, 1994 
memorandum from Mary Nichols on the same subject. The earlier 
memorandum allowed SIP credit for national mobile source measures 
required but not yet promulgated ``provided states also commit to 
adopt gap-filling measures to account for any shortfalls, identified 
later, between currently anticipated and actual final rule 
benefits.'' EPA is now eliminating the requirement for state 
commitments. If the final national measure delivers less than 
credited in the SIP, EPA may issue a call for plan revision under 
section 110(k)(5) if the SIP for an area becomes, as a result, 
substantially inadequate to comply with any requirement of the Act, 
including the provisions relating to demonstrations of ROP and 
attainment.
---------------------------------------------------------------------------

    Additionally, EPA has been evaluating other potential future 
``Federal measures,'' including controls for most categories of mobile 
sources. These measures have significance in the

[[Page 10937]]
South Coast. EPA's evaluation of these possible national controls has 
been ongoing from the period of FIP preparation through the present, 
and has evolved into a consultative process.
    In the area of onroad controls, EPA's heavy-duty vehicle 
initiative, developed in cooperation with CARB, is one aspect of this 
process. This consultative initiative, which is consistent with the 
State's measure M6, has already shown success and recently culminated 
in a Statement of Principles (SOP) signed by EPA, individual members of 
the heavy-duty engine industry, and CARB regarding future national 
standards for on-highway heavy-duty engines. The goal of the SOP is to 
reduce NOX emissions from on-highway heavy-duty engines to levels 
approximating 2.0 g/bhp-hr beginning in model year 2004, while also 
achieving reductions in HC. For further details on the SOP and 
initiative, see EPA's Advance Notice of Proposed Rulemaking (60 FR 
45580, August 31, 1995). EPA is also engaged in cooperative efforts 
with the State of California to discuss with affected industry a 
similar heavy-duty nonroad initiative.
    As discussed more fully in section II.C.7.e., below, setting forth 
EPA's proposed approval of the South Coast attainment demonstration, 
EPA agrees with the State that national and international mobile source 
emissions are increasingly significant contributors to ozone pollution, 
particularly in the South Coast. EPA also agrees with the State that 
CARB and EPA share responsibility for controlling new mobile sources. 
To address this challenge cooperatively, the CARB Board, in its 
resolution of adoption of the 1994 California Ozone SIP, included 
specific direction to the CARB Executive Officer to continue to meet 
and confer with EPA regarding the federal assignments (CARB Resolution 
No. 94-60, November 15, 1994).
    Following adoption of the 1994 California Ozone SIP, EPA and CARB 
have discussed the affected mobile source control categories and, while 
the agencies have not reached consensus on difficult issues of 
jurisdiction and responsibility, the two agencies share a strong mutual 
interest in further consultation on and collaboration in identifying 
and developing the most effective and least disruptive approaches to 
achieving further reductions in air emissions from the various 
categories of mobile sources.
    Building on this interagency cooperation, EPA proposes to continue 
and expand the ongoing consultative process with California and other 
appropriate parties to examine the potential for additional mobile 
source controls that can contribute to progress and attainment, and 
that are compatible with other important regulatory considerations, 
including those associated with interstate and international commerce. 
EPA proposes that this consultative process conclude in June 1997 with 
a decision on those additional measures that are appropriate for each 
party to pursue. EPA further proposes to make an enforceable commitment 
to undertake rulemakings, after the consultative process, on control 
measures needed to achieve the emission reductions which are determined 
to be appropriate for EPA.
    Finally, EPA proposes to approve the South Coast attainment 
demonstration if CARB submits, before EPA's final action, an 
enforceable SIP commitment to adopt and submit as a SIP revision: (a) 
by December 31, 1997, a revised attainment demonstration for the South 
Coast as appropriate after the consultative process; and (b) by 
December 31, 1999, enforceable emission limitations and other control 
measures needed to achieve the emission reductions which are determined 
to be appropriate for the State.

C. Local ROP and Attainment Plans and Measures

1. Introduction and Common Elements
    This section discusses the progress and attainment plans for each 
area, including local, state and Federal measures, and describes EPA's 
proposed action on those plans with regard to the ROP requirements of 
sections 182(b)(1)(A) and 182(c)(2)(B), and the attainment requirements 
of sections 182(b)(1)(A) and 182(c)(2)(A).
    As described earlier, following local adoption of the plans, the 
State took further action on the plans, adding a statewide measure 
component and, in some cases, modifying the locally adopted plan. 
Volume IV of the 1994 California Ozone SIP presents CARB's adjustments 
to the local plans, and summarizes the ROP and attainment 
demonstrations. CARB also supplied detailed spreadsheets delineating 
projected emissions reductions in each area, by State measure and 
milestone year, to complete the technical documentation of each area's 
ROP and attainment demonstrations.
    a. Emission Inventories.
(1) 1990 Base Year Inventories
    Section 182(a)(1) of the CAA requires that a comprehensive, 
accurate, and current base year inventory of actual emissions be 
submitted to EPA as a SIP revision for each area designated as 
nonattainment and classified marginal and higher for ozone. The 1990 
emissions inventory is defined as the base year inventory and provides 
a benchmark for ROP and attainment planning.
    Annual and ozone season weekday inventories of actual emissions are 
required for VOC, NOX, and CO for each ozone nonattainment area. 
These inventories detail emissions for all categories of stationary 
point sources, area sources, onroad vehicles, offroad engines, and 
biogenics (for VOC). The inventories use the best available emission 
factors and activity indicators representative of the ozone season.
    The 1990 base year inventories were initially submitted by CARB in 
November 1992 and improved inventories were submitted again as part of 
the 1994 California Ozone SIP. On March 30, 1995, CARB submitted 
revised 1990 base year inventories which further refined the inventory 
estimates. EPA is proposing approval of the March 30, 1995, inventory 
submittal.
    Annual emission inventory estimates are adjusted to represent the 
ozone season weekday inventory (the ``planning inventory''). Seasonal 
throughput, seasonal activity factors, and temperature considerations 
are used, as appropriate, to develop the planning inventory. Although 
EPA recommends a 3 month peak ozone season as the basis for the 
planning inventory estimates, because of the persistence of ozone 
violations in California from May through October, the CARB uses a 6 
month average operating day emissions estimate.
    Stationary sources are broadly grouped into point and area sources. 
Point sources typically include permitted equipment located at a fixed, 
identifiable establishment (e.g., a refinery). Actual emissions are 
reported annually to local air pollution agencies as a part of an 
ongoing operating permit renewal and emission statement processes. 
Operating permit requirements generally pertain to sources emitting at 
least 10 tons per year, with lower limits in some areas. This 
information is used by the local air district to periodically update 
inventory estimates for stationary sources.
    Area sources generally include small point sources (e.g., gasoline 
dispensing facilities) and ubiquitous emissions not associated with a 
permit (e.g., consumer products). CARB and the local air pollution 
control districts share the responsibility for calculating emissions 
from the over 200 area source categories. The emission and activity 
factors used

[[Page 10938]]
to develop area source inventories are described in CARB 
guidance.9

    \9\ Methods for Assessing Area Source Emissions in California 
(CARB, September 1991 and updates).
---------------------------------------------------------------------------

    Mobile source estimates are divided into on-road and off-road 
categories. On-road emissions are estimated by vehicle class, roadway 
type and vehicle age. Caltrans, CARB, local government agencies, and 
the Department of Motor Vehicles supply the data necessary to estimate 
emissions from on-road mobile sources. On-road mobile source emissions 
inventories for SIP purposes are generally developed using the latest 
version of MOBILE, EPA's mobile source emission factor model, but in 
California, CARB has developed its own on-road mobile source emission 
factor model, EMFAC. Together with CARB's WEIGHT model, which estimates 
accumulated mileage and activities by vehicle year, and BURDEN model, 
which estimates vehicle trips and vehicle miles travelled by vehicle 
type, CARB develops the on-road mobile source emissions inventories for 
the nonattainment areas. The version of EMFAC used for the November 15, 
1994 and March 30, 1995 submittals was EMFAC7F version 1.1.
    The off-road mobile source inventory includes emissions from 
categories ranging from lawn mowers to ocean-going vessels. Emission 
estimates are a function of emission factors, activity rates, and 
control factors. Emission factors and methodologies used to calculate 
emissions are based on information compiled by EPA, CARB, and the local 
districts.
    The CARB base year inventory includes biogenic emission estimates. 
EPA's biogenic emission estimation software, Biogenic Emission 
Inventory System, was used in conjunction with temperature inputs 
representative of the area of concern, consistent with EPA guidance. 
This software is used to estimate emissions from natural sources (e.g., 
trees, crops, etc.). Although biogenic emissions represent an 
uncontrollable source, these potentially significant emissions are 
included in the attainment demonstration modeling.
    Because the CARB inventories represent actual emissions, the 
inventories already reflect excess, noncompliant emissions and, 
consistent with EPA's guidance 10, they do not require further 
adjustment by the 80% rule effectiveness discount.

    \10\ EPA policy memorandum from OAQPS to Regional Air Division 
Directors (April 27, 1995).
---------------------------------------------------------------------------

    While CAA requirements and EPA guidance are stated in terms of VOC, 
some California District plans estimate their inventories in terms of 
either Reactive Organic Gases (ROG) or Reactive Organic Compounds 
(ROC). The Santa Barbara, San Joaquin Valley, and Sacramento area plans 
use ROG while Ventura uses ROC. The only difference between VOC and 
ROG/ROC is the inclusion of ethane in the ROG/ROC inventory estimates.
    EPA has concluded that the VOC, NOX, and CO inventories of 
actual emissions for the ozone nonattainment areas satisfy the 
requirements of the Act and EPA's associated approval criteria. 
Therefore, under section 182(a)(1) of the Act, EPA is proposing to 
approve the 1990 base year inventories for each of the ozone 
nonattainment areas addressed in this document.
(2) Inventory Projections
    Future year inventories are needed to estimate milestone and 
attainment year inventories. These estimates are then used in 
projecting and calculating ROP and attainment. Future year inventories 
are developed using base year inventory estimates adjusted using growth 
and control factors. Growth factors are developed using socioeconomic 
forecasts (i.e., population, housing, employment, and motor vehicle 
activity) and Standard Industrial Classification data. Growth rates for 
motor vehicles consider projected changes in vehicle miles traveled, 
trips, and vehicles in use. Control factors are used to adjust future 
year inventory estimates to account for reductions from adopted and 
scheduled measures. EPA proposes to approve the inventory projections 
for each of the nonattainment areas, since the projections meet all 
applicable requirements.
    b. ROP Targets. The CAA outlines and EPA guidance details the 
method for calculating the ROP requirements for the milestone years. 
Section 182(b)(1)(A) requires a 15% VOC reduction by November 15, 1996, 
from the adjusted 1990 base year inventory (i.e., 3% per year reduction 
from 1990 to 1996). Section 182(c)(2)(B) requires that after 1996, an 
additional 3% per year VOC (or NOX equivalent) emission reduction 
be achieved (in 3 year increments) until the attainment date. The 
percent reduction requirements by milestone year and by area 
classification are shown below in the table labeled ``ROP 
Requirements.''

                            ROP Requirements                            
------------------------------------------------------------------------
                                                              Reduction 
                   Classification                      Year   (percent) 
------------------------------------------------------------------------
Moderate and above..................................   1996           15
Serious and above...................................   1999           24
Severe I and above..................................   2002           33
                                                       2005           42
Severe II and above.................................   2007           48
Extreme.............................................   2008           51
                                                       2010           57
------------------------------------------------------------------------

    Section 182(b)(1) requires that ROP reductions: (1) Be in addition 
to those needed to offset any growth in emissions between the base year 
and the milestone year; (2) exclude emission reductions from 4 
prescribed Federal programs (i.e., the Federal motor vehicle control 
program (FMVCP), the Federal Reid vapor pressure (RVP) requirements, 
any Reasonably Available Control Technology corrections previously 
specified by EPA, and any I/M program corrections necessary to meet the 
basic I/M level); and (3) be calculated from an ``adjusted'' baseline 
relative to the year for which the reduction is applicable. The 
adjusted ROP base year inventory excludes the emission reductions from 
fleet turnover between 1990 and 1996 and from Federal RVP regulations 
promulgated by November 15, 1990 or required under section 211(h) of 
the Act.
    The net effect of these adjustments is that states are not able to 
take credit for emissions reductions that would result from fleet 
turnover of current Federal standard cars and trucks, or from already 
existing Federal fuel regulations. However, the SIP can take full 
credit for the benefits of any new (i.e., post-1990) vehicle emissions 
standards, as well as any other new Federal or State motor vehicle or 
fuel program that will be implemented in the nonattainment area, 
including Tier I exhaust standards, new evaporative emissions 
standards, reformulated gasoline, enhanced I/M, California low 
emissions vehicle program, transportation control measures, etc.
    When compared to the national tailpipe and fuel standards 
promulgated by EPA, California has had more stringent standards for 
some time. The methodology used in the November 1993 15% ROP submittals 
was not necessarily the most appropriate way to model the exclusions, 
in light of the effects of these differing standards. Therefore, CARB 
recalculated the exclusions for Federal RVP and FMVCP for its adjusted 
base year inventories and submitted revised ROP plans in November 1994. 
The resulting ROP targets conform to applicable requirements and EPA 
proposes to

[[Page 10939]]
approve them as part of the approval of the ROP demonstrations.
    c. NOX Substitution. Section 182(c)(2)(C) allows for NOX 
reductions (after accounting for growth) which occur after 1990 to be 
used to meet the post-1996 ROP emission reduction requirements, 
provided that such NOX reductions meet the criteria outlined in 
EPA's NOX substitution guidance.11 The criteria require that: 
(1) the sum of all creditable VOC and NOX reductions must meet the 
3% per year ROP requirement; (2) substitution is on a percent-for-
percent of adjusted base year emissions for the relevant pollutant; and 
(3) the sum of all substituted NOX reductions cannot be greater 
than the cumulative NOX reductions required by the modeled 
attainment demonstration. While the Act and the guidance do allow use 
of 1990-1996 NOX reductions for substitution in the post-1996 
period, the amount of NOX reductions available for substitution is 
subject to the same creditability exclusions described above. As 
discussed below in the review of the individual plans, the California 
ozone areas relying on NOX substitution in post-1996 ROP 
demonstrations (San Joaquin, San Diego, Sacramento, and Ventura) meet 
applicable requirements pertaining to NOX substitution.

    \11\ ``NOX Substitution Guidance,'' OAQPS, USEPA, December, 
1993; ``Guidance on the Post-1996 Rate-of Progress Plan and the 
Attainment Demonstration,'' EPA-452/R-93-015, OAQPS, USEPA, January, 
1994.
---------------------------------------------------------------------------

    The term ``VOC equivalents'' is used in the ROP tables for the 
areas relying on NOX substitution. This term was taken from CARB's 
November 1994 SIP. VOC equivalents is not meant to imply that NOX 
reductions were substituted for VOC reductions on a one-for-one basis. 
The amount of NOX substitution was determined by calculating the 
VOC shortfall percentage, and then converting the percentage into an 
equivalent reduction of NOX. For the areas relying on NOX 
substitution, CARB and the districts have demonstrated that the 
NOX reductions are creditable and not in excess of what is 
necessary for attainment. A companion EPA technical support document 
provides a more detailed description of the calculations and amount of 
NOX reduction used to represent the VOC equivalents.
    d. Modeling.
(1) Introduction
    An attainment demonstration is a key part of a State Implementation 
Plan: using air quality modeling, it shows that the proposed emission 
control measures are sufficient for the NAAQS to be attained by the 
applicable deadline. For ozone nonattainment areas classified serious, 
severe, or extreme, section 182(c)(2)(A) requires an attainment 
demonstration based on photochemical grid modeling, for which the Urban 
Airshed Model (UAM) is the EPA-approved model. (See Appendix W of 40 
CFR Part 51.)
    The modeling portions of the SIP submittals were generally reviewed 
in terms of technical accuracy, and for consistency with EPA modeling 
guidelines. The guidelines are the Guideline for Regulatory Application 
of the Urban Airshed Model (EPA, 7/91), Guideline for Regulatory 
Application of the Urban Airshed Model for Areawide Carbon Monoxide 
(EPA, 6/92), and Guidance on Urban Airshed Model (UAM) Reporting 
Requirements for Attainment Demonstration (EPA, 3/94). Thus, the review 
covered the appropriateness of data sources, appropriateness of 
technical judgements and procedures followed in input preparation, 
performance of quality assurance and diagnostic procedures, adequacy of 
model base case performance, consistency of control measure simulation 
inputs with the submitted control measures, adequacy of the 
demonstration of attainment of the NAAQS, and consistency and 
completeness of documentation. EPA's confidence in the conclusions 
reached in the review is enhanced because of EPA's participation in 
technical committees and meetings for each area, and other 
communications with State and local technical staff, as the model 
applications were being developed.
    The UAM model uses an inventory of pollutant emissions, together 
with air quality and meteorological data, as input to a system of 
algorithms incorporating chemistry and dispersion, in order to simulate 
an observed pollution episode. Once a ``base case'' is developed that 
meets the minimum performance criteria, projected future emissions are 
used as input to simulate air quality in the attainment deadline year. 
Various combinations of geographically uniform emission reductions are 
simulated to determine approximate attainment reduction targets. 
Planners design a control strategy to meet these targets, and then 
simulate it with UAM, including the spatially and temporally varying 
effects of the selected controls. Attainment is demonstrated when the 
modeled air quality with emission controls in effect is below the NAAQS 
throughout the geographical modeling domain.
(2) Uncertainty and Model Performance
    A modeling attainment demonstration is subject to several 
uncertainties. The meteorological and air quality inputs have their own 
associated uncertainties, both in measurement and in 
representativeness. In addition, not all variables can be measured for 
all hours, so default and interpolated values must be used. Processes 
such as chemical reaction and advection necessarily appear in the model 
in simplified form. The selected episodes may not represent all 
conditions conducive to high pollutant levels. Finally, base case and 
projected emissions are uncertain. Biogenic emission inventory 
methodologies are in a state of flux. In spite of these sources of 
uncertainty, photochemical grid modeling is the best tool that is 
available for determining the emission reductions that are needed for 
NAAQS attainment. The Guideline procedures are meant to ensure that 
inputs are set in a scientifically sound manner, and to uncover 
compensating errors that can be present even when the model predicts 
ozone well.
    As explained in the Guideline, episodes are chosen for modeling 
based on their high ozone levels, data availability, and other 
criteria. Generally, episodes should be chosen that are approximately 
as severe as the area's design value, which is based on the historical 
ozone highs. During a particular episode, the observed ozone peak may 
be higher or lower than the design value; but as long as it is 
relatively close, that episode can be accepted for use in an attainment 
demonstration. See also the discussion of the attainment test, below.
    Once an episode is chosen, modelers attempt to simulate it with 
UAM. Various performance statistics and diagnostic tests are available 
to gauge their success. Three of the statistics are presented in the 
table in this notice. The most commonly stated one is the peak 
accuracy, since it is the ozone peak that is ultimately to be reduced 
to the NAAQS level. However, it uses only one place and time out of all 
those simulated. In judging model performance to be acceptable, 
predictions at many places and times are examined. Also, the overall 
pattern of ozone and other chemical species are evaluated, in light of 
the changing emissions and meteorology occurring during the episode. 
Sometimes a lengthy process of diagnostic testing and refinement of 
inputs is required. Thus, the finally accepted base case may show some 
bias (e.g., simulated ozone peak not matching the observed), and yet be 
fully adequate as a simulation of the episode, and for use in an 
attainment demonstration. Except where noted, all of the submitted 
California modeling

[[Page 10940]]
episodes had acceptable performance, meeting EPA Guideline criteria.
(3) Number of Episodes
    The Guideline calls for a minimum of 3 primary episode days to be 
modeled. EPA elected to allow areas to use just two if they were based 
on a field study, since this provides substantially more complete data, 
and so more confidence in model development procedures and results. The 
tradeoff of higher quality modeling for fewer episodes is deemed by EPA 
to be a reasonable one. Unfortunately, due to problems of model 
performance or transport, some areas were only able to develop modeling 
for a single ozone episode. The Guideline is silent on what should be 
done in cases where, in spite of an area's best effort, the model 
simply cannot be made to perform for a given ozone episode. EPA is 
electing to accept the California efforts as adequate.
(4) Attainment Test
    Recently, questions have arisen over what test an area has to meet 
to demonstrate attainment; this has been thought of as showing that 
every geographical point within the model domain is reduced to .12 ppm 
ozone for every hour, for every episode modeled. However, the 
statistical nature of the ozone NAAQS allows each point in space to 
have one NAAQS exceedance per year (3 year average). Adding this to the 
uncertainties in model inputs and in the model itself, the above test 
may be overly conservative. In borderline cases, the overall weight of 
evidence of modeling, emissions and meteorological characteristics of 
an area may provide a useful adjunct to the attainment test, though 
this was not used in the California SIP submittal.
(5) Transport
    Pollutant transport between areas is an issue of continuing concern 
for the areas of Sacramento, San Diego, San Joaquin Valley, Santa 
Barbara, South Coast, and Ventura. For Sacramento and for the portions 
of southern California downwind of South Coast, attainment has not been 
demonstrated under transport conditions. The ozone episodes modeled 
either did not include high levels of transported pollutants, were 
found to be dominated by transport and then abandoned as not 
representative, or the model did not perform particularly well. 
Ideally, upwind and downwind areas would be included within a single 
modeling domain; this was done in the SARMAP study centered on the San 
Joaquin Valley, but thus far the model does not perform well for the 
Sacramento area. Only a limited number of episodes have so far been 
modeled, some of them having little transported pollution.
    Nevertheless, EPA accepts the modeling done so far as adequate, 
because it is the best modeling available, and does show attainment of 
the NAAQS for locally generated days. However, the emission reductions 
indicated as required by the modeling to date must be viewed as valid 
for this stage of planning only; additional reductions may be necessary 
in these nonattainment areas or in other areas upwind (such as the San 
Francisco Bay Area) to guarantee attainment of the NAAQS. EPA expects 
that this will be determined by the modeling additional transport 
episodes over the next few years; this effort was not feasible for the 
November 15, 1994 deadline because of constraints on available data, 
funds and staff. In part because of the California Clean Air Act with 
its more stringent ozone standards, modeling will continue in these 
areas; for example, a Southern California Transport study is currently 
being planned. SIP revisions may become necessary should such future 
modeling indicate the need for additional emissions controls.
    EPA proposes to approve the modeling in all of the ozone plans 
acted on in this notice, as meeting the requirements for attainment 
demonstrations in sections 182(b)(1)(A) and 182(c)(2)(A).
2. Santa Barbara
    a. Identification of Plan. On November 3, 1994, the Santa Barbara 
County Air Pollution Control Board adopted Santa Barbara's 1994 Clean 
Air Plan (CAP). On November 14, 1994, CARB submitted the plan to EPA to 
comply with ROP and attainment demonstration requirements of the 
Act.12

    \12\ November 14, 1994 letter from James Boyd (CARB) to Felicia 
Marcus, EPA, forwarding the Santa Barbara SIP and CARB Executive 
Order No. G-125-163 approving the Santa Barbara Plan. The Santa 
Barbara submittal includes a November 3, 1994 letter from Douglas 
Allard (SBAPCD) to James Boyd (CARB) forwarding the 1994 Santa 
Barbara CAP.
---------------------------------------------------------------------------

    b. 1990 Base Year Inventories. The SIP provides detailed estimates 
of the actual VOC and NOX emissions that occurred in Santa Barbara 
in 1990. These base year inventories are summarized in the table 
labeled ``1990 Santa Barbara SIP Inventories.'' 13 A discussion of 
these inventories and of EPA's proposed action on them can be found in 
section II.C.1.a. of this notice.

    \13\ More detailed summaries of this inventory can be found in 
the 1994 CAP, Table 3-3.

                   1990 Santa Barbara SIP Inventories                   
                          [tons per summer day]                         
------------------------------------------------------------------------
                         Category                            ROG    NOX 
------------------------------------------------------------------------
Stationary................................................     32     12
Mobile....................................................     25     36
OCS.......................................................      6     22
                                                           -------------
      Total...............................................     63     70
------------------------------------------------------------------------

    c. SIP Control Measures.
(1) Description
    The submittal describes a series of rules that have been adopted in 
order to reduce ROG and NOX emissions in Santa Barbara. Chapters 4 
and 5 of the CAP describes the control measures relied upon for 
demonstrating compliance with the Act's progress and attainment 
requirements. With the exception of contingency measure T-21, Enhanced 
Inspection and Maintenance Program, all required measures identified in 
Chapters 4 and 5 of the CAP have been adopted. Because the Santa 
Barbara area will not achieve attainment of the ozone NAAQS by November 
1996 with currently adopted controls, as described later under section 
II.C.2.f., EPA expects that measure T-21 will be adopted in 1996 and 
implemented in 1997 as described in the CAP. Reductions of 
approximately .6 tons per day (tpd) of ROG and NOX are expected 
from the implementation of T-21.
    Table 5-1 describes the plan's transportation control measures 
(TCMs), which, collectively, supersede the TCM list in the previously 
approved 1982 Air Quality Attainment Plan (AQAP). The TCMs are 
projected to result in net emissions reductions for the 1996 target 
attainment year of .3 tpd ROG and .2 tpd NOX.
(2) EPA Action
    EPA proposes to approve, under sections 110(k)(3) and 301(a) of the 
Act, the control measures portion of the plan, including the 
enforceable commitment to adopt contingency measure T-21.
    EPA approval of the applicable State and local fully-adopted and 
SIP-submitted regulations either has already occurred or will be 
completed in separate rulemaking in the future. As requested by the 
State, EPA also proposes to delete from the current SIP the 1982 
transportation control measures.
    d. ROP Provisions.
(1) ROP Emission Targets
    The submittal describes the ROG emission reductions needed to meet

[[Page 10941]]
ROP requirements based on Santa Barbara's adjusted 1990 base year 
inventories. The SIP also provides emission estimates for 1996, the 
only applicable ROP milestone year, by determining the impacts of the 
control strategy and calculating anticipated changes in emissions 
resulting from projected levels of population, industrial activity, 
motor vehicle use, etc. A summary of the ROP targets and the projected 
ROG emissions is provided below in the Table labeled ``Santa Barbara 
ROP Forecasts and Targets'' (see 1994 CAP, Tables 9-2 and 9-5). The 
plan provides for achievement of the ROP target emission levels for 
1996, the only applicable milestone year for a moderate ozone area.

               Santa Barbara ROP Forecasts and Targets 14               
                     [In tons of ROG per summer day]                    
------------------------------------------------------------------------
                                                                        
------------------------------------------------------------------------
1990 Base Year Inventory...................................           57
1996 Projections (Adopted Measures)........................           41
1996 ROP Target............................................          42 
------------------------------------------------------------------------
14 For the ROP determination, OCS emissions were not included.          

(2) ROP Control Strategy
    In general, only adopted measures may be relied upon in meeting the 
15% ROP requirement. This requirement is met, since the plan relies 
only on adopted regulations to achieve the required ROP reductions. A 
detailed description of Santa Barbara's 15% ROP demonstration is 
provided in Chapter 9 of the CAP.
(3) EPA Action
    The Santa Barbara 1994 CAP meets the ROP requirements of the Act, 
including the requirement to achieve by 1996 a minimum of 15% of 
creditable VOC emission reductions from the 1990 base year. EPA 
therefore proposes to approve Santa Barbara's ROP plan under section 
182(b)(1) of the Act.
    e. Demonstration of Attainment. Santa Barbara is classified as a 
moderate nonattainment area for ozone. As a result, the SIP must 
contain adequate control measures and commitments to demonstrate 
attainment of the ozone NAAQS by 1996.
(1) Control Strategy
    The control strategy for Santa Barbara's SIP attainment 
demonstration incorporates all of the measures identified in Chapters 4 
and 5 of the CAP. The demonstration presumes the measures, which are 
already fully adopted as regulations, will be implemented as shown in 
the plan, resulting in the emission reductions indicated in the CAP.
(2) Modeling and Attainment Demonstration
    The 1994 SIP describes urban airshed modeling analysis performed to 
demonstrate that the control strategy identified above will result in 
NAAQS attainment. A summary of the emission reductions needed to attain 
the standard is provided below in the table labeled ``Emission 
Reductions Needed in Santa Barbara,'' which is derived from information 
in the 1994 CAP.

               Emission Reductions Needed in Santa Barbara              
                          [Tons per summer day]                         
------------------------------------------------------------------------
                                                             ROG    NOX 
------------------------------------------------------------------------
1990 Baseline Emissions Inventory.........................     63     70
Carrying Capacity.........................................     44     56
Reductions Needed.........................................     19     14
------------------------------------------------------------------------

    A summary of the emission reductions projected from the SIP control 
strategy is provided below in the table labeled ``Santa Barbara 
Attainment Demonstration,'' which is derived from the information in 
the 1994 CAP.

                 Santa Barbara Attainment Demonstration                 
                          [Tons per summer day]                         
------------------------------------------------------------------------
                                                             ROG    NOX 
------------------------------------------------------------------------
Reductions from adopted measures..........................     19     14
Committed local measures..................................      0      0
Committed State measures..................................      0      0
                                                           -------------
      Total...............................................     19     14
------------------------------------------------------------------------

    The Santa Barbara area was classified as a moderate ozone 
nonattainment area based on a design value of .14 ppm, recorded at the 
Carpenteria site. This was based on 1987-1989 data. The attainment 
demonstration for Santa Barbara is based on Urban Airshed Modeling even 
though use of photochemical modeling is not a specific Clean Air Act 
requirement for a moderate area. Modeling for the Santa Barbara area is 
discussed in two documents: the ``Santa Barbara County Photochemical 
Modeling Investigation (May, 1994)'' and in the 1994 CAP (Chapter 7 and 
Appendix D: Photochemical Modeling Documentation).
    In the Santa Barbara County Photochemical Modeling Investigation, a 
county-wide assessment of the July 29-31, 1991 episode was analyzed. 
The peak ozone concentration measured during this period was .13 ppm at 
the Paradise Road Monitoring station. The model performance statistics 
did not meet EPA performance requirements as the peak ozone 
concentrations were underpredicted by approximately 50%. Because of the 
lack of performance, an attainment demonstration was not performed with 
this episode.
    Santa Barbara APCD and Ventura County APCD collaborated on a joint 
modeling effort to satisfy the attainment demonstration requirements of 
the Clean Air Act. This collaborative effort is summarized in the 1994 
CAP. Two 1984 episodes were selected for the joint modeling effort: 
September 5-7 and September 16-17. The episodes and modeling statistics 
are discussed further in the accompanying technical support document. 
Using 1996 emission forecasts, the photochemical modeling demonstrated 
attainment of the ozone standard, although attainment for the September 
5-7 episode required removal of the in-transit shipping channel 
emissions.
    Although the modeling does not fully meet EPA's performance 
criteria, EPA believes that the modeling is sufficient to propose 
approval of the attainment plan.
(3) EPA Action
    EPA believes that the Santa Barbara attainment demonstration 
satisfies CAA requirements. EPA therefore proposes to approve Santa 
Barbara's attainment demonstration under section 182(b)(1)(A) of the 
Act.
    f. Overall EPA Action. EPA proposes to approve fully the Santa 
Barbara ozone SIP with respect to the Act's requirements for emission 
inventories, control measures, and demonstrations of ROP and 
attainment.
    The November 14, 1994, SIP submittal included an ozone 
redesignation request and maintenance plan for the Santa Barbara 
nonattainment area. During 1994-5, however, the Santa Barbara area 
recorded a number of exceedances of the ozone standard. This will 
prevent the area from attaining the ozone standard in 1996, since 
attainment of the ozone NAAQS requires no more than three exceedances 
over a three year period.
    On July 18, 1995, the State agreed to withdraw its request for EPA 
action on the redesignation request and the maintenance plan. As a 
result, EPA is not taking action on the redesignation request and 
maintenance plan at this time. However, even though the 1994-5 
exceedances will prevent Santa Barbara from achieving the ozone 
standard by 1996, EPA is proposing to approve Santa Barbara's 1994 CAP. 
If

[[Page 10942]]
the Santa Barbara area experiences no more than one exceedance during 
the 1996 ozone season and the state has complied with all requirements 
and commitments in the Santa Barbara SIP, section 181(a)(5) of the Act 
authorizes EPA to grant a one-year extension of the attainment date 
upon request by the State. Up to two extensions can be granted. 
Therefore, disapproval of the 1994 CAP and a reclassification of the 
area to serious for failure to attain is not yet warranted.
3. San Diego
    a. Identification of Plan. On November 1, 1994, the Board of the 
San Diego Air Pollution Control District (SDAPCD) adopted the ``1994 
Ozone State Implementation Plan Revision''. On November 15, 1994, CARB 
adopted the SIP revision as the local element of the 1994 California 
Ozone SIP, which CARB then submitted to EPA 15 to comply with ROP 
and attainment demonstration requirements.

    \15\ November 15, 1994 letter from James Boyd (CARB) to Felicia 
Marcus, EPA, forwarding the San Diego component of the SIP and CARB 
Board Resolution No. 94-63 approving the San Diego plan revision. 
The San Diego submittal includes a November 3, 1994 letter from 
Richard Sommerville (SDAPCD) to James Boyd (CARB) forwarding the 
1994 San Diego plan and the SDAPCD Board Resolution approving the 
SIP revision.
---------------------------------------------------------------------------

    b. 1990 Base year Inventories. The SIP provides detailed estimates 
of the actual VOC and NOX emissions that occurred in San Diego in 
1990. These base year inventories are summarized in the table below, 
labeled ``1990 San Diego SIP Inventories.'' A more specific breakdown 
of 1990 base year emissions can be found on page 9 of the plan, and 
further inventory information is provided in the appendices to the 
plan. A discussion of these inventories and of EPA's proposed action on 
them can be found in section II.C.1.a., above.

                     1990 San Diego SIP Inventories                     
                          [Tons per summer day]                         
------------------------------------------------------------------------
                        Category                            VOC     NOX 
------------------------------------------------------------------------
Stationary..............................................   100.0    28.0
Mobile..................................................   212.5   209.9
                                                         ---------------
      Total.............................................   312.5   237.9
------------------------------------------------------------------------

    c. SIP Control Measures.
(1) Description
    The plan lists the VOC and NOX control measures relied upon 
for demonstrating compliance with the Act's progress and attainment 
requirements, all of which had been adopted at the time of the plan 
submittal (see Table 4, ``1999 Attainment Demonstration Control 
Measures'' on p. 29 of the SIP).
(2) EPA Action
    EPA proposes to approve, under sections 110(k)(3) and 301(a) of the 
Act, the control measures portion of the plan. EPA approval of the 
adopted regulations has already occurred or will be completed in 
separate rulemakings in the future.
    d. ROP Provisions.
(1) ROP Emission Targets
    The 1994 SIP describes the VOC emission reductions needed to meet 
ROP requirements based on San Diego's adjusted 1990 base year 
inventories (see pp. 33 and 35). The SIP also provides emission 
estimates for the ROP milestone years by projecting the impacts of the 
control strategy and of anticipated changes in population, industrial 
activity, and other socio-economic factors. A summary of the ROP VOC 
targets and the projected VOC emissions is provided below in the table 
labeled ``San Diego ROP Forecasts and Targets.''
    As the table shows, VOC reductions alone were not projected to be 
sufficient to meet the ROP target levels for milestone years after 
1996. Section 182(c)(2)(C) of the Act and EPA guidance allows 
reductions in NOX emissions to be substituted for post-1996 VOC 
reductions so long as certain conditions are met (see discussion above 
in section II.C.1.c.). The San Diego plan meets those conditions and 
the corresponding NOX reductions as substituted for VOC reductions 
are also shown in the table. EPA concludes that the plan provides for 
achievement of the ROP target emission levels for all years.

                   San Diego ROP Forecasts and Targets                  
                          [Tons per summer day]                         
------------------------------------------------------------------------
                    Milestone year                        1996     1999 
------------------------------------------------------------------------
1990 Base Year VOC Inventory..........................    312.6    312.6
VOC Projections (Adopted Measures)....................    236.1    232.0
ROP VOC Target........................................    241.2    212.2
VOC Shortfall.........................................      0       19.8
NOX Substitution in VOC Equivalents 16................      0       19.8 
------------------------------------------------------------------------
16 The term ``VOC equivalents'' is not meant to imply that NOX          
  reductions were substituted for VOC reductions on a one-for-one basis.
  The amount of NOX substitution was determined by calculating the VOC  
  shortfall percentage, and then converting the percentage into an      
  equivalent reduction of NOX. CARB and the district have demonstrated  
  that the NOX reductions are creditable and not in excess of what is   
  necessary for attainment. A companion TSD provides a more detailed    
  description of the calculations and amount of NOX reduction used to   
  represent the VOC equivalents.                                        

(2) ROP Control Strategy
    In general only adopted measures may be relied upon in meeting the 
15% ROP requirement in section 182(b)(1) of the Act. Since the plan 
relies only on adopted regulations, this requirement is met. According 
to the submitted plan, the post-1996 ROP control strategy includes all 
those VOC measures relied upon for the 15% ROP demonstration, as well 
as fully adopted NOX regulations.
(3) EPA Action
    The San Diego SIP meets the CAA requirements for ROP. EPA therefore 
proposes to approve San Diego's 15% and post-1996 ROP plans under 
sections 182(b)(1) and 182(c)(2) of the Act.
    e. Demonstration of Attainment. San Diego County is classified as a 
serious nonattainment area for ozone (see 40 CFR 81.305). As a result, 
the SIP must contain adequate control measures to demonstrate 
attainment of the ozone NAAQS by 1999.
(1) Control Strategy
    The San Diego SIP attainment demonstration includes all of the 
measures described earlier. The demonstration presumes the measures 
will continue to be implemented, resulting in the emission reductions 
shown.
(2) Modeling and Attainment Demonstration
    The 1994 SIP describes urban airshed modeling analysis performed to 
demonstrate that the control strategy described in above will result in 
NAAQS attainment. A summary of the emission reductions needed to attain 
the standard is provided below in the table labeled ``Emission 
Reductions Needed in San Diego,'' which is taken from the

[[Page 10943]]
1994 California Ozone SIP, Volume IV, Table F-1.

                 Emission Reductions Needed in San Diego                
                          [Tons per summer day]                         
------------------------------------------------------------------------
                                                             VOC    NOX 
------------------------------------------------------------------------
1990 Baseline Emissions Inventory.........................    313    238
Carrying Capacity.........................................    232    175
Reductions Needed.........................................     81     63
------------------------------------------------------------------------

    A summary of the emission reductions projected from the SIP control 
strategy is provided below in the table labeled ``San Diego Attainment 
Demonstration,'' which is taken from the 1994 California Ozone SIP, 
Volume IV, Table F-2.

                   San Diego Attainment Demonstration                   
                          [Tons per summer day]                         
------------------------------------------------------------------------
                                                             VOC    NOX 
------------------------------------------------------------------------
Reductions from Adopted Measures..........................     81     63
Committed Local Measures..................................      0      0
Committed State Measures..................................      1      1
                                                           -------------
    Total.................................................     82     64
------------------------------------------------------------------------

    The San Diego area was originally classified as a severe ozone 
nonattainment area based on a rounded 1987-1989 design value of .19 
ppm, recorded at the Del Mar station. This was later changed to 
serious, since the actual value was .185 ppm, which is within 5 percent 
of the cutoff for serious (.180 ppm), as allowed under section 
181(a)(4) of the Act (see 60 FR 3771, January 19, 1995). Exceedances of 
the ozone NAAQS typically occur in the San Diego area more than 20 
times per year. Most of these exceedances are classified by the SDAPCD 
as due to transport of pollutants from the South Coast. Locally 
generated ozone episodes are more in the neighborhood of .15 ppm.
    In order to simulate air quality for the SIP and other planning 
needs, San Diego contracted with Radian Corporation to conduct the San 
Diego Area Air Quality Study (SDAQS) study during the summer of 1989, 
and to perform subsequent modeling (summarized in draft report, 
November 1991). That work was later extended by SDAPCD staff, with 
participation by CARB. The field study involved a network of air 
quality and meteorological instruments, including airplanes, to measure 
ozone and its precursors and the meteorological inputs needed for UAM.
    Two episodes were selected for modeling from among those recorded 
during the field study. The August 28-29, 1989 episode had a monitored 
maximum of .154 ppm, at Alpine. After diagnostic simulations and 
refinement of model inputs, a base case was developed for the August 
episode, representing a locally generated ozone exceedance. The model 
performance statistics were within the goals set in EPA guidance, and 
the episode simulation was judged adequate for determining emission 
reduction targets.
    A second episode, September 20-22, 1989, having a .156 ppm peak, 
was strongly affected by upper air transport of pollutants from the Los 
Angeles area. Only limited data was available on this transported 
pollution. While the model's performance for NOX was poor, and the 
expected phenomenon of a transported ozone cloud aloft mixing down to 
the ground was not simulated well, the model met EPA statistical 
performance goals for ozone.
    Significant uncertainties remain, but the modeling does show the 
beneficial effect on San Diego of the upwind Los Angeles area's 
emissions reductions. EPA expects that additional study of transport, 
to be conducted over the next few years, may result in the revisiting 
of San Diego's air quality problems. The District is an active 
participant in the planning of this study. Since San Diego has 
demonstrated that such high levels are due primarily to pollutants 
transported from the South Coast, additional San Diego emission 
reductions are not required for attainment (see 60 FR 3771-2). Finally, 
the impact of adopted State and SCAQMD reductions in the 1999 
attainment year further support assumptions that transport of ozone and 
ozone precursors into the San Diego area will decline significantly in 
future years.
    Using 1999 boundary conditions and a projected emission inventory 
including the effect of already-adopted local and state emission 
control measures, the ozone peaks were simulated to be .111 ppm and 
.116 ppm for the August and September episodes, respectively, thus 
demonstrating attainment of the ozone NAAQS.
(3) EPA Action
    EPA believes that the San Diego component of the 1994 SIP fulfills 
the CAA attainment demonstration requirements. EPA is therefore 
proposing to approve the San Diego attainment demonstration under 
section 182(c)(2)(A) of the Act.
    f. Overall EPA Action. EPA proposes to approve fully the San Diego 
ozone SIP with respect to the Act's requirements for emission 
inventories, control measures, and demonstrations of ROP and 
attainment.
4. San Joaquin Valley
    a. Identification of Plan. On November 14, 1994, the Board of the 
San Joaquin Valley Unified Air Pollution Control District (SJVUAPCD) 
adopted the Ozone Attainment Demonstration Plan for the San Joaquin 
Valley. On November 15, 1994, CARB modified the plan and adopted it as 
the local element of the 1994 California Ozone SIP, which CARB then 
submitted to EPA to comply with the ROP and attainment demonstration 
requirements of the Act.\17\

    \17\ November 15, 1994 letter from James Boyd (CARB) to Felicia 
Marcus, EPA forwarding the San Joaquin Valley Ozone Attainment 
Demonstration Plan and CARB Board Resolution no. 94-65 approving the 
San Joaquin Valley revised 1993 Rate-of-Progress Plan, Post-1996 
Rate-of-Progress Plan and the Attainment Demonstration Plan as 
revisions to the SIP. The San Joaquin Valley submittal includes a 
November 14, 1994 letter from David Crow (SJVUAPCD) to James Boyd 
(CARB), forwarding the San Joaquin Valley Ozone Attainment 
Demonstration Plan and the SJVUAPCD Board Resolution (94-11-02a) 
approving the plan.
---------------------------------------------------------------------------

    b. 1990 Base year Inventories. The SIP provides detailed estimates 
of the actual VOC and NOX emissions that occurred in San Joaquin 
in 1990. These base year inventories are summarized in the table below, 
labeled ``1990 San Joaquin Valley SIP Inventories.'' A discussion of 
the inventories and of EPA's proposed action on them can be found in 
section II.C.1.a. of this notice.

                 San Joaquin Valley 1990 SIP Inventories                
                        [In tons per summer day]                        
------------------------------------------------------------------------
                      Category                           VOC       NOX  
------------------------------------------------------------------------
Stationary..........................................    325.64    382.56
Mobile..............................................    218.28    327.80
    On-Road.........................................    170.86    228.53
    Non-Road........................................     47.44     99.28
                                                     -------------------
      Total.........................................    543.9     710.4 
------------------------------------------------------------------------

    c. SIP Control Measures.
(1) Description
    The State of California and SJVUAPCD have already adopted many 
measures which will contribute to the necessary emissions reductions 
for meeting 15% ROP, post-1996 ROP and attainment requirements. In 
addition, the SIP describes a series of rules that SJVUAPCD has 
recently adopted or committed to adopt in order to reduce VOC and 
NOX emissions (SJVUAPCD Attainment Demonstration Plan, table 4-1 & 
1994 California Ozone SIP,

[[Page 10944]]
Volume IV, Table G-9. The table labeled ``San Joaquin Local Control 
Measures'' indicates the dates of rule adoption and implementation and 
the emission reductions presumed to occur by 1999. No reductions from 
local measures are assumed in the 15% ROP plan for 1996.

                                       San Joaquin Local Control Measures                                       
----------------------------------------------------------------------------------------------------------------
                                                                                                  Reductions    
       Rule No.           Control measure      Implementing    Adoption date  Implementation -------------------
                               title              agency                           date          VOC       NOX  
----------------------------------------------------------------------------------------------------------------
                                            1999 Emission Reductions                                            
                                                                                                                
----------------------------------------------------------------------------------------------------------------
4403 (VOC)...........  Components Serving    SJVUAPCD........  2Q/91........  2Q/91.........      4.55  ........
                        Gas Production.                                                                         
4703.................  Stationary Gas        SJVUAPCD........  3Q/94........  3Q/2000.......  ........     11.92
                        Turbine Engines.                                                                        
4653.................  Adhesives...........  SJVUAPCD........  1Q/94........  1Q/95.........      1.3   ........
4623.................  Organic Liquid        SJVUAPCD........  2Q/91........  2Q/96.........     13.2   ........
                        Staorage.                                                                               
                       TCMs................  ................  Ongoing......  Ongoing.......      1.8       1.5 
4601.................  Architectural         SJVUAPCD........  1Q/96........  1Q/98.........      1.51  ........
                        Coatings.                                                                               
4692.................  Commercial            SJVUAPCD........  2Q/96........  2Q/98.........      0.39  ........
                        Charbroiling.                                                                           
4354.................  Glass Melting         SJVUAPCD........  1Q/96........  4Q/99.........  ........      2.87
                        Furnaces.                                                                               
4607.................  Graphic Arts........  SJVUAPCD........  4Q/95........  4Q/97.........      0.84  ........
4642.................  Landfill Gas Control  SJVUAPCD........  1Q/95........  4Q/99.........      1.41  ........
4412.................  Oil Workover Rigs...  SJVUAPCD........  2Q/96........  2q/98.........  ........      0.87
4623.................  Organic Liquid        SJVUAPCD........  3Q/95........  3q98..........      3.0   ........
                        Storage.                                                                                
4662.................  Organic Solvent       SJVUAPCD........  1Q/96........  1Q/98.........      2.44  ........
                        Degreasing.                                                                             
4663.................  Organic Solvent       SJVUAPCD........  2Q/96........  2Q/98.........      0.19  ........
                        Waste.                                                                                  
4306.................  Small Boilers,        SJVUAPCD........  3Q/95........  3Q/99.........  ........      7.6 
                        Process Heaters and                                                                     
                        Steam Generators.                                                                       
4611.................  Smaller Printer       SJVUAPCD........  4Q/95........  4Q/97.........      0.30  ........
                        Operations.                                                                             
4702.................  Stationary IC         SJVUAPCD........  2Q/95........  4Q/99.........  ........     12.44
                        Engines.                                                                                
4621 & 4622..........  Stationary Storage    SJVUAPCD........  2Q/96........  2Q/98.........      0.41  ........
                        Tanks/Fuel Transfer                                                                     
                        into Vehicle Tanks.                                                                     
                       Waste Burning.......  ND..............  ND...........  ND............            ........
4411.................  Well Cellars........  SJVUAPCD........  2Q/96........  2Q/98.........      0.56  ........
----------------------------------------------------------------------------------------------------------------

(2) EPA Action
    According to the State's submissions, these measures are relied 
upon in meeting the ROP and attainment requirements of the Act. 
Accordingly, and because the measures strengthen the SIP, EPA proposes 
to approve, under sections 110(k)(3) and 301(a) of the Act, the 
enforceable commitments to adopt and implement the control measures by 
the dates specified to achieve the emission reductions shown. EPA also 
proposes to assign credit to the measures for purposes of ROP and 
attainment. EPA approval of the adopted regulations will be completed 
in separate rulemakings in the future.
    d. ROP Provisions.
(1) ROP Emission Targets
    The SIP describes the VOC emissions to meet the ROP target and the 
VOC emissions with plan reductions (see the 1994 California Ozone SIP, 
Table G-7). Additional information regarding the ROP provisions is 
presented in the 1994 San Joaquin Valley Ozone Attainment Demonstration 
Plan, Table 2-1. A summary of the ROP VOC targets and the projected VOC 
emissions is provided below in the table labeled ``San Joaquin Valley 
ROP Forecasts and Targets.''
    As the table shows, VOC reductions alone were not projected to be 
sufficient to meet the ROP target levels for milestone year 1999. 
Section 182(c)(2)(C) of the Act and EPA guidance allows reductions in 
NOX emissions to be substituted for post-1996 VOC reductions so 
long as certain conditions are met (see discussion above in section 
II.C.1). The San Joaquin Valley plan meets those conditions and the 
corresponding NOX reductions as substituted for VOC reductions are 
also shown in the table.

              San Joaquin Valley ROP Forecasts and Targets              
                          [Tons per summer day]                         
------------------------------------------------------------------------
                      Milestone year                         1996   1999
------------------------------------------------------------------------
VOC Emissions to Meet ROP Target..........................    433    383
VOC Emissions with Plan Reductions........................    430    430
NOX Substitution in VOC Equivalents 18....................      0    47 
------------------------------------------------------------------------
18 See footnote 16.                                                     

    The SIP includes a separate ROP analysis for the Kern District 
portion of the San Joaquin Valley.

      San Joaquin Valley (Kern District) ROP Forecasts and Targets      
                          [Tons per summer day]                         
------------------------------------------------------------------------
                      Milestone year                         1996   1999
------------------------------------------------------------------------
VOC Emissions to Meet ROP Target..........................   13.2   11.7
VOC Emissions with Plan Reductions........................   13.2   13.3
NOX Substitution in VOC Equivalents.......................      0    1.6
------------------------------------------------------------------------

(2) 15% ROP Control Strategy
    In general, only adopted measures may be relied upon in meeting the 
15% ROP requirement. The San Joaquin Valley control strategy for the 
15% ROP requirements, therefore, excluded all committed control 
measures listed in the table labeled ``Control Strategy for San Joaquin 
Valley.'' The description of adopted measures relied upon in providing 
for this requirement is in the San Joaquin Valley Ozone Attainment 
Demonstration Plan in Tables 4-1 and 3-2.
(3) Post-1996 ROP Control Strategy
    According to the submitted plan, the post-1996 ROP control strategy 
includes all those measures relied upon for the 15% ROP demonstration, 
plus any measures for which emissions reductions are shown for 
milestones occurring after 1996, excluding

[[Page 10945]]
projected reductions from Federal measures.
(4) EPA Action
    The San Joaquin Valley SIP meets the CAA requirements for 15% ROP 
and post-1996 ROP, including the requirement that the plan provide for 
achievement of the ROP target emission levels for all years. EPA 
therefore proposes to approve San Joaquin Valley's 15% ROP and post-
1996 ROP plans under sections 182(b)(1) and 182(c)(2) of the Act.
    e. Demonstration of Attainment. The San Joaquin Valley is 
classified as a serious nonattainment area for ozone (see 40 CFR 
81.305). As a result, the SIP must contain adequate control measures to 
demonstrate attainment of the ozone NAAQS by 1999.
(1) Control Strategy
    The San Joaquin Valley attainment demonstration includes all of the 
measures described earlier. The demonstration presumes the measures 
will be adopted and implemented as scheduled, resulting in the emission 
reductions shown.
(2) Modeling and Attainment Demonstration
    The 1994 SIP describes the urban airshed modeling analysis 
performed to demonstrate that the control strategy described above will 
result in attainment. The attainment analysis is based on the model 
developed as part of the San Joaquin Valley Air Quality Study, and 
divides the nonattainment area into three subregions, and the Kern 
District portion. CARB notes that the model is being further refined 
and appropriate changes in the SIP may be made in the future.
    The area was classified as serious based on a design value of .17 
ppm, recorded at the Edison site. This was based on 1987-1989 data.
    CARB applied the SARMAP Air Quality Model to develop the attainment 
demonstration for the San Joaquin Valley SIP. The SARMAP model is a 
nonhydrostatic version of the Regional Acid Deposition Model, with 
several modifications. The EPA approved UAM version IV was also applied 
to the domain for performance comparison. The SARMAP field study, 
conducted during the summer of 1990, provided an enhanced database of 
air quality and meteorological data, both at the surface level and 
aloft.
    The model has been applied to one episode from the study period, 
August 5-6, 1990. The episode was chosen because it represents a 
typical regime conducive to relatively high ozone peaks. The peak ozone 
concentration for the episode was .16 ppm, compared to the design 
concentration of .17 ppm.
    The EPA recommended statistical criteria for ozone were met for the 
episode using the SARMAP model. The predicted peak for the episode for 
the southern portion of the domain was .14 ppm, as compared to the 
measured concentration of .16 ppm, an underprediction of 13%. The 
predicted peak for the central portion of the domain was .152 ppm, 
compared to the predicted peak of .131 ppm, an overprediction of 16%. 
For the northern portion of the domain, a value of .137 ppm was 
predicted compared to the measured value of .150 ppm, an 
underprediction of 9%.
    A summary of the emission reductions needed to attain the standard 
is provided below in the table labeled ``Emission Reductions Needed in 
the San Joaquin Valley,'' which is taken from the 1994 California Ozone 
SIP, Volume IV, Tables G-1, G-3, and G-5.

                              Emission Reductions Needed in the San Joaquin Valley                              
                                              [Tons per summer day]                                             
----------------------------------------------------------------------------------------------------------------
                                              North                    Central                    South         
                                   -----------------------------------------------------------------------------
                                        ROG          NOX          ROG          NOX          ROG          NOX    
----------------------------------------------------------------------------------------------------------------
1990 Baseline Emissions Inventory.          129          124          126          115          217          367
Carrying Capacity.................         >129         >124           88           90          145          165
Reductions Needed.................  ...........  ...........           38           25           72          202
----------------------------------------------------------------------------------------------------------------

    CARB's preliminary attainment calculations for the 3 subregions are 
provided below in the table labeled ``San Joaquin Valley Attainment 
Demonstration,'' which is taken from the 1994 California Ozone SIP, 
Volume IV, Tables G-2, G-4, and G-6.

                                   San Joaquin Valley Attainment Demonstration                                  
                                              [Tons per summer day]                                             
----------------------------------------------------------------------------------------------------------------
                                              North                    Central                    South         
                                   -----------------------------------------------------------------------------
                                        ROG          NOX          ROG          NOX          ROG          NOX    
----------------------------------------------------------------------------------------------------------------
Reductions from Adopted Measures..           15            8           27            9           58          164
Committed Local Measures..........            5  ...........            8            6           22           20
Committed State Measures..........            8            2            4            2            3            1
                                   -----------------------------------------------------------------------------
      Total.......................           28           11           39           16           83          185
----------------------------------------------------------------------------------------------------------------

    For purposes of the attainment demonstration, the Kern District 
portion of the San Joaquin Valley was not separately modeled, under the 
assumption that attainment in this area should result primarily from 
upwind reductions achieved in the South San Joaquin sub-region.
(3) EPA Action
    EPA believes that the San Joaquin Valley component of the 1994 SIP 
fulfills the CAA attainment demonstration requirements. EPA is 
therefore proposing to approve the San Joaquin attainment demonstration 
under section 182(c)(2)(A) of the Act.
    f. Overall EPA Action. EPA proposes to approve fully the San 
Joaquin ozone SIP with respect to the Act's

[[Page 10946]]
requirements for emission inventories, control measures, and 
demonstrations of ROP and attainment.
5. Sacramento
    a. Identification of Plans. The Sacramento Metropolitan Area 
nonattainment area includes 6 counties (whole and in part) and 
jurisdiction is divided among 5 local air pollution control agencies: 
the Sacramento Metro Air Quality Management District (SMAQMD), the 
Yolo-Solano Air Pollution Control District (YSAPCD), the Feather River 
Air Quality Management District (FRAQMD), the Placer County Air 
Pollution Control District (PCAPCD), and the El Dorado County Air 
Pollution Control District (ECAPCD). Each local air pollution control 
agency adopted and submitted the Sacramento Area Regional Ozone 
Attainment Demonstration Plan which was transmitted to CARB. On 
December 29, 1994, CARB then submitted the plan to EPA.

                     Sacramento Ozone SIP Adoptions                     
------------------------------------------------------------------------
                                                              Resolution
              Agency                    Date of adoption          No.   
------------------------------------------------------------------------
SMAQMD...........................  Dec. 1, 1994.............  94-0014   
YSAPCD...........................  Dec. 14, 1994............  94-28     
FRAQMD...........................  Dec. 12, 1994............  1994-13   
PCAPCD...........................  Dec. 20, 1994............  94-07     
ECAPCD...........................  Dec. 13, 1994............  321-94    
------------------------------------------------------------------------

    b. 1990 Base Year and Projected Inventories. The Sacramento Area 
ozone attainment plan provides detailed estimates of 1990 emissions 
from all VOC and NOX sources in the Sacramento nonattainment area 
in 1990. These base year inventories are summarized in the table 
labeled ``1990 Sacramento Area SIP Inventories.'' 19 A discussion 
of these inventories and of EPA's proposed action can be found in 
section II.C.1.c. of this notice.

    \19\ More detailed summaries of this inventory can be found in 
the 1994 Sacramento Area Regional Ozone Attainment Demonstration, 
tables C-1 and C-2.

                  1990 Sacramento Area SIP Inventories                  
                          [Tons per summer day]                         
------------------------------------------------------------------------
                         Category                            ROG    NOX 
------------------------------------------------------------------------
Stationary................................................     88     12
Mobile....................................................    134    151
    On-road...............................................    110    118
    Off-road..............................................     24     34
                                                           -------------
      Total...............................................    222    164
------------------------------------------------------------------------

    c. SIP Control Measures.
(1) Description
    The State of California and the local air districts in Sacramento 
Area have already adopted many measures which will contribute to the 
necessary emissions reductions for meeting 15% ROP, post-1996 ROP, and 
attainment requirements. In addition, the 1994 SIP describes a series 
of rules that the Sacramento Area air pollution control districts have 
committed to adopt in order to reduce VOC and NOX emissions in the 
Sacramento Area. The table labeled ``Sacramento Local Control 
Measures'' describes the dates by which the plans presume adoption and 
implementation, and the emission reductions presumed to occur by each 
milestone, from 1999 through the attainment year (2005), to the extent 
that information was available in the submitted plan.

                                                            Sacramento Local Control Measures                                                           
                                                                     [Tons per day]                                                                     
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                                                               Emission reductions      
      VOC control measure title           Implementing agency             Adoption date           Implementation date   --------------------------------
                                                                                                                            1996       2002       2005  
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                  ROG Control Measures                                                                  
                                                                                                                                                        
--------------------------------------------------------------------------------------------------------------------------------------------------------
Adhesives...........................  ECAPCD.....................  2/95.......................  1996...................        1.2        1.3        1.4
                                      PCAPCD.....................  2/95                                                                                 
                                      SMAQMD.....................  5/95                                                                                 
                                      YSAPCD.....................  Adopted '94                                                                          
Architectural Coatings..............  ECAPCD.....................  Adopted....................  1996...................        0.9        1.3        1.6
                                      PCAPCD.....................  4/95                                                                                 
                                      Amendment to existing rule   Adopted                                                                              
                                       SMAQMD.                                                                                                          
                                      YSAPCD.....................  3/95                                                                                 
Auto Refinishing....................  ECAPCD.....................  Adopted '94................  1996...................        2.1        2.6        3.2
                                      PCAPCD.....................  Adopted '94                                                                          
                                      SMAQMD.....................  5/95                                                                                 
                                      YSAPCD.....................  Adopted '94                                                                          
Fugitive HC Emissions...............  ECAPCD.....................  4/95.......................  1999...................        1.4        1.4        1.4
                                      PCAPCD.....................  Adopted                                                                              
                                      SMAQMD.....................  Adopted                                                                              
                                      YSAPCD.....................  Adopted 5/94                                                                         
Graphic Arts........................  ECAPCD.....................  Adopted 9/94...............  June 1995..............        0.4        0.5        0.5
                                      PCAPCD.....................  11/94                                                                                
                                      SMAQMD.....................  '81, '93                                                                             
                                      YSAPCD.....................  Adopted 5/94                                                                         

[[Page 10947]]
                                                                                                                                                        
Landfill Gas Control................  ECAPCD.....................  12/94......................  1996...................        1.2        1.2        1.2
                                      PCAPCD.....................  Adopted....................  1996...................                                 
                                      SMAQMD.....................  2/95.......................  1997...................                                 
                                      YSAPCD.....................  Adopted....................  1996...................                                 
Pleasure Craft Coating Operations...  ECAPCD.....................  4/96.......................  1996-1999..............        0.2        0.2        0.2
                                      PCAPCD.....................  12/94                                                                                
                                      SMAQMD.....................  1998                                                                                 
                                      YSAPCD.....................  Adopted                                                                              
Pleasure Craft Refueling............  ECAPCD.....................  3/98.......................  1999...................        0.1        0.1        0.2
                                      PCAPCD.....................  3/98                                                                                 
                                      SMAQMD.....................  3/98                                                                                 
                                      YSAPCD.....................  3/98                                                                                 
Polyester Resin Operations..........  ECAPCD.....................  2/96.......................  1997...................        0.2        0.2        0.2
                                      PCAPCD.....................  1/96.......................  1997...................                                 
                                      SMAQMD.....................  1998.......................  1999...................                                 
                                      YSAPCD.....................  Adopted '93                                                                          
Semiconductor Mfg...................  PCAPCD others?.............  2/95.......................  1996...................        0.1        0.2        0.2
SOCMI Distillation/Reactors.........  SMAQMD others?.............  9/95.......................  1997...................        1.4        1.5        1.6
Surface Preparation and Cleanup.....  ECAPCD.....................  2/95.......................  1996...................        3.0        3.3        3.6
                                      PCAPCD.....................  2/95                                                                                 
                                      SMAQMD.....................  2/95                                                                                 
                                      YSAPCD.....................  Adopted 5/94                                                                         
Vents on Underground Gasoline         SMAQMD.....................  2/95.......................  1995...................        0.1        0.2        0.2
 Storage Tanks.                                                                                                                                         
                                      YSAPCD.....................  1/95                                                                                 
                                      (Both amend current rules).                                                                                       
Wood Products Coatings..............  ECAPCD.....................  2/95.......................  1996...................        0.5        0.5        0.5
                                      PCAPCD.....................  Adopted 11/94..............  1996...................                                 
                                      SMAQMD.....................  Adopted 11/94..............  1996...................                                 
                                      YSAPCD.....................  Adopted 11/94                                                                        
                                                                                                                                                        
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                              Regional NOX Control Measures                                                             
                                                                                                                                                        
--------------------------------------------------------------------------------------------------------------------------------------------------------
Boilers and Steam Generators........  ECAPCD.....................  Adopted '94................  1996-1997..............        0.8        0.9        1.0
                                      PCAPCD.....................  Adopted '94                                                                          
                                      SMAQMD.....................  2/95                                                                                 
                                      YSAPCD.....................  Adopted '94                                                                          
Gas Turbines........................  PCAPCD.....................  Adopted 10/94..............  1997...................        0.2        0.3        0.3
                                      SMAQMD.....................  2/97                                                                                 
                                      YSAPCD.....................  5/94                                                                                 
Internal Combustion Engines.........  ECAPCD.....................  Adopted '94................  Phased in 1997.........        0.3        0.4        0.5
                                      PCAPCD.....................  12/95                                                                                
                                      SMAQMD.....................  2/95                                                                                 
                                      YSAPCD.....................  Adopted '94                                                                          
Residential Water Heaters...........  ECAPCD.....................  1996.......................  1995-1997..............        0.3        0.4        0.5
                                      PCAPCD.....................  12/95                                                                                
                                      SMAQMD.....................  1996                                                                                 
                                      YSAPCD.....................  Adopted 11/94                                                                        
Woodwaste Boilers...................  PCAPCD.....................  5/95.......................  ???....................        ???          ?          ?
Mobile NOX Measures:                                                                                                                                    
    1. Off-Road Heavy Duty Vehicles.  All........................  12/95......................  1/97...................        2.0        3.0        5.0
    2. On-Road Heavy Duty Vehicles                                                                                                                      
--------------------------------------------------------------------------------------------------------------------------------------------------------


(2) EPA Action
    According to the State's submissions, these measures are relied 
upon in meeting the post-1996 ROP and attainment requirements of the 
Act. Accordingly, and because the measures strengthen the SIP, EPA 
proposes to approve, under sections 110(k)(3) and 301(a) of the Act, 
the enforceable commitments to adopt and implement the control measures 
by the dates specified to achieve the emission reductions shown. EPA 
also proposes to assign credit to the measures for purposes of post-
1996 ROP and attainment. EPA approval of the adopted regulations will 
be completed in separate rulemakings in the future.
    d. Rate of Progress.
(1) ROP Emission Targets
    The 1994 SIP describes the VOC emission reductions needed to meet 
ROP requirements based on Sacramento's adjusted 1990 base year

[[Page 10948]]
inventories.20 The SIP also provides emission estimates for the 
ROP milestone years by projecting the impact of the control strategy 
and of anticipated changes in population, industrial activity, and 
other socio-economic factors. A summary of the ROP VOC targets and the 
projected VOC emissions is provided below in the table labeled 
``Sacramento ROP Forecasts and Targets.''
    As the table shows, VOC reductions alone were not projected to be 
sufficient to meet the ROP target levels for milestone years after 
1996. As discussed earlier (section II.C.1.c.), the Clean Air Act 
allows substitution of reductions in NOX emissions for VOC 
reductions so long as certain conditions are met. The Sacramento Area 
plan meets those conditions and the corresponding NOX reductions 
are also shown in the table below labeled ``Sacramento ROP Forecasts 
and Targets.''

                                      Sacramento ROP Forecasts and Targets                                      
                                              [Tons per summer day]                                             
----------------------------------------------------------------------------------------------------------------
                       Milestone year                             1996         1999         2002         2005   
----------------------------------------------------------------------------------------------------------------
1990 Base Year VOC Inventory................................          211          211          211          211
VOC Inventory Projection....................................          175          167          163          159
ROP VOC Target..............................................          162          142          124          107
Preliminary VOC Shortfall...................................           13           25           39           52
VOC Reductions from Committal Measures......................            0           19           23           14
Total VOC Shortfall.........................................           13            6           16           38
NOX Substitution in VOC Equivalents 21......................           13            6           16          38 
----------------------------------------------------------------------------------------------------------------
\21\ See footnote 16.                                                                                           

(2) 15% ROP Control Strategy
    On November 15, 1993, CARB submitted to EPA a ROP plan intended to 
demonstrate that VOC emissions would be reduced by 15% by 1996. EPA 
determined that this ROP plan was incomplete because it relied on 
controls not yet adopted in regulatory form. Appendix G of the 1994 SIP 
submittal updates Sacramento's 1993 ROP plan. EPA has deemed this plan 
complete. EPA will act on the Sacramento Area's 15% ROP submittal in 
separate rulemaking.

    \20\ See the Sacramento Area Regional Ozone Attainment Plan, 
Tables G-1, G-2 and G-3 for ROP targets and lists of measures 
included in meeting those targets.
---------------------------------------------------------------------------

(3) Post-1996 ROP
    Appendix G of the Sacramento Area Regional Ozone Attainment Plan 
provides detailed information on the ROP emissions reductions from 1996 
to 2005. The following summary can be found at Table G-1 of the 
Sacramento Area Regional Ozone Attainment Plan and provides a general 
summary of how the expected ROP reductions will be met.
(4) EPA Action
    EPA believes that the Sacramento area component of the 1994 SIP 
meets the CAA requirements for post-1996 ROP. EPA is, therefore, 
proposing to approve the Sacramento area's post-1996 ROP plan under 
section 182(b)(2) of the Act. EPA will act on Sacramento's 15% ROP Plan 
in separate rulemaking.
    e. Attainment of the Ozone NAAQS. The Sacramento Area is classified 
as a severe nonattainment area for ozone. As a result, the SIP must 
contain adequate control measures and commitments to demonstrate 
attainment of the ozone NAAQS by 2005.
(1) Control Strategy
    The control strategy for the Sacramento Area's SIP attainment 
demonstration includes all of the State measures and the local measures 
identified in the Table labeled ``Sacramento Local Control Measures.'' 
The demonstration presumes the measures will be adopted and implemented 
by the dates shown, resulting in the emission reductions shown.
(2) Modeling and Attainment Demonstration
    The 1994 SIP describes urban airshed modeling analysis performed to 
demonstrate that the control strategy will result in ozone NAAQS 
attainment. A summary of the emission reductions needed to attain the 
standard is provided below in the table labeled ``Emission Reductions 
Needed in Sacramento,'' taken from Table D-1 in Volume IV of the 1994 
California Ozone SIP.

                Emission Reductions Needed in Sacramento                
                          [Tons per summer day]                         
------------------------------------------------------------------------
                                                             ROG    NOX 
------------------------------------------------------------------------
1990 Baseline Emissions Inventory.........................    222    164
Attainment Inventory......................................    137     98
Reductions Needed.........................................     85     66
------------------------------------------------------------------------

    A summary of the emission reductions projected from the SIP control 
strategy is provided below in the table labeled ``Sacramento Attainment 
Demonstration,'' which is based on Table D-2 from Volume IV of the 1994 
California Ozone SIP.

                   Sacramento Attainment Demonstration                  
                          [Tons per summer day]                         
------------------------------------------------------------------------
                                                            VOC     NOX 
------------------------------------------------------------------------
Reductions from Adopted Measures........................    55      40  
Committed Local Measures................................    17       7  
Committed State Measures................................    15      14  
Reductions from National Measures \1\...................     1.6     4.3
                                                         ---------------
      Total.............................................    88.6    65.3
------------------------------------------------------------------------
\1\ Credit shown is EPA's estimate of reductions from statutorily-      
  mandated national rules.                                              

    Based on the Sacramento Area's classification as a severe ozone 
nonattainment area and the results of an Urban Airshed Modeling 
analysis, Sacramento must reduce its 2005 emissions inventory to 137 
tons per day of VOC and 98 tons per day of NOX in order to 
demonstrate attainment of the NAAQS. The expected emissions reductions 
from the combination of adopted measures and commitments to adopt 
measures listed above and in the Sacramento's 1994 Regional Ozone 
Attainment Plan will achieve the necessary reductions to meet the 
attainment targets.
    The Sacramento area was classified as a serious ozone nonattainment 
area based on a design value of .16 ppm, recorded at the Folsom 
station. This was based on 1987-1989 data; the 1990-1992 value was also 
.16 ppm. Exceedances of the ozone NAAQS occur in the Sacramento area 
about 6 to 10 times per year.

[[Page 10949]]

    In order to simulate air quality for the SIP and other planning 
needs, CARB and the Sacramento local agencies started planning the 
Sacramento Area Ozone Study (SAOS) early in 1989, with intensive data 
collection performed during the summer of 1990. This involved an 
extended network of air quality and meteorological instruments, 
including on airplanes, to measure ozone and its precursors and the 
meteorological inputs needed for UAM. The Sacramento Modeling Advisory 
Committee (SMAC) was established for technical oversight of the 
modeling effort, and included regulatory, industry, and environmental 
group participants. CARB and its contractor, Systems Applications 
International, prepared a modeling protocol which was accepted by EPA 
as meeting EPA Guideline requirements.
    Two episodes were selected for modeling from those recorded during 
the field study. Ozone maxima occurred in the Interstate 50 and in the 
Interstate 80 corridors, downwind (east and northeast) of Sacramento. 
While the observed ozone peaks were less than the design value of .16 
ppm, they were high enough to meet EPA guidelines for episode 
selection, especially considering the excellent database available for 
analysis. They had features typical of urban ozone episodes, including 
temperatures exceeding 100  deg.F, low wind speeds, and a temperature 
inversion that tended to trap pollutants near the ground. After 
extensive diagnostic simulations and refinement of model inputs, a base 
case was developed for the July 11-13, 1990 episode. While not 
outstanding, the model performance statistics were well within the 
goals set in EPA's Guideline. This episode's performance was judged 
adequate for determining emission reduction targets.
    A second episode, August 8-10, 1990, was strongly affected by upper 
air transport of pollutants into the area. Only limited data was 
available on this transported pollution, so it was difficult to set 
boundary conditions for the model. In addition, the source areas were 
not certain; the San Francisco Bay Area, the San Joaquin Valley, and 
recirculation from Sacramento itself are all possible sources for the 
pollutant influx. For these reasons, an attainment demonstration using 
this episode would be of little value and, after consultation with EPA, 
the State did not pursue it.
    Sacramento and the San Francisco Bay area are included within the 
modeling domain of the SARMAP study, conducted for the San Joaquin 
Valley nonattainment area. Ideally, modeling of transport should be 
performed with both upwind and downwind areas in the same modeling 
domain, as was the case here. Although the SARMAP episodes were not 
chosen with a Sacramento attainment demonstration in mind, there is 
significant transport to Sacramento in the San Joaquin Valley modeling. 
Since that modeling showed attainment throughout the whole domain, 
including Sacramento, EPA deems that attainment under transport 
conditions has been addressed for Sacramento. Should additional 
information analyses be performed for these areas, the issue of 
transport to Sacramento will need to be revisited.
    Using 2005 and boundary conditions and a projected emission 
inventory without additional emission controls, the ozone peak was 
simulated to be .134 ppm. Additional controls, giving reductions 
relative to the 1990 baseline of 34% VOC and 40% NOX, brought 
emissions under the carrying capacity of 137 tpd of VOC and 98 tpd of 
NOX, and brought the ozone peak down to .124 ppm, thus 
demonstrating attainment of the ozone NAAQS.
(3) EPA Action
    EPA believes that the Sacramento Area component of the 1994 SIP 
fulfills the CAA attainment demonstration requirements. EPA is 
therefore proposing to approve, under section 182(c)(2)(A) of the Act, 
the Sacramento Area attainment demonstration.
    f. Overall EPA Action. EPA proposes to approve fully the Sacramento 
Area ozone SIP with respect to the Act's requirements for emission 
inventories, control measures, and demonstrations of post-1996 ROP and 
attainment. EPA will take action separately on Sacramento's 15% ROP 
provisions.
6. Ventura
    a. Identification of Plan. On November 8, 1994, the Ventura County 
Air Pollution Control District (VCAPCD) adopted Ventura's 1994 Air 
Quality Management Plan (AQMP). On November 15, 1994, CARB modified the 
AQMP and adopted it as the local element of the 1994 California Ozone 
SIP, which CARB then submitted to EPA to comply with ROP and attainment 
demonstration requirements of the Act.22

    \22\ November 15, 1994 letter from James Boyd (CARB) to Felicia 
Marcus, EPA, forwarding the Ventura AQMP and CARB Board Resolution 
No. 94-62 approving the Ventura plan. The Ventura submittal includes 
a November 8, 1994 letter from Richard Baldwin (VCAPCD) to James 
Boyd (CARB) forwarding the 1994 Ventura AQMP and the VCAPCD Board 
Resolution approving the AQMP.
---------------------------------------------------------------------------

    b. 1990 Base Year Inventories. The SIP provides detailed estimates 
of the actual VOC and NOX emissions that occurred in Ventura in 
1990. These base year inventories are summarized in the table below, 
labeled ``1990 Ventura SIP Inventories.'' A more specific breakdown of 
1990 base year emissions can be found in Tables 9-3 and 9-4 of the 1994 
AQMP. A discussion of these inventories and of EPA's proposed action on 
them can be found in section II.C. of this notice.

                      1990 Ventura SIP Inventories                      
                          [Tons per summer day]                         
------------------------------------------------------------------------
                         Category                            ROG    NOX 
------------------------------------------------------------------------
Stationary................................................     44     18
Mobile....................................................     41     55
Outer Continental Shelf 23................................      2      8
                                                           -------------
      Total...............................................     87     81
------------------------------------------------------------------------
23 OCS emissions are included because they are included in the modeled  
  attainment demonstration.                                             

    c. SIP Control Measures.
(1) Description
    The 1994 AQMP (Tables 6-1 and 6-2) and 1994 California Ozone SIP 
(Volume IV, Table E-6) describe a series of rules that the VCAPCD has 
adopted or committed to adopt in order to reduce ROG and NOX 
emissions in Ventura. Control measures not already adopted at the time 
of the plan submittal are listed below in the table labeled ``Ventura 
Local Control Measures.'' The table describes not only the dates by 
which the plans presume adoption and implementation, but the emission 
reductions presumed to occur by each milestone, to the extent that 
information was available in the submitted plan. The information 
contained in the table below reflects revisions in Ventura's recently 
adopted 1995 Air Quality Management Plan, adopted on December, 19, 
1995. The 1995 Plan slightly revised adoption dates, implementation 
dates, and reductions for numerous district measures already contained 
in the 1994 SIP. These revisions will have no adverse impact on ROP or 
attainment. Although these revisions have not been formally submitted 
from CARB to EPA at this time, CARB has indicated to EPA that they 
intend to submit the revised adoption and implementation dates prior to 
EPA's final action on the plan.

[[Page 10950]]


                                         Ventura Local Control Measures                                         
                                                 [Tons per day]                                                 
----------------------------------------------------------------------------------------------------------------
                                                                                  ROG/NOX reductions \1\        
     Rule No.      Control measure    Adoption date      Implementation  ---------------------------------------
                                                              date          1996      1999      2002      2005  
----------------------------------------------------------------------------------------------------------------
N-101............  Gas Turbines...               3/95               4/97      0.0       0.45      0.47      0.49
N-102............  Boilers, Steam                6/96               1/97      0.0       0.05      0.06      0.06
                    generators,                                                                                 
                    Heaters, <1                                                                                 
                    mmbtu.                                                                                      
R-105............  Glycol                       12/94               7/96      0.41      0.73      0.65      0.57
                    Dehydrators.                                                                                
R-317............  Clean-up                     12/95               7/96      1.45      1.57      1.67      1.76
                    Solvents and                                                                                
                    Solvent Wastes.                                                                             
R-322............  Painter                       6/97        12/97-12/98      0.0       0.48      0.51      0.53
                    Certification.                                                                              
R-324............  Screen Printing               6/96               6/97      0.0       0.29      0.30      0.31
                    Operations.                                                                                 
R-327............  Electronic                    6/96               7/97      0.0       0.07      0.07      0.08
                    Component                                                                                   
                    Manufacture.                                                                                
R-403............  Vehicle Gas                   5/95               1/96      0.24      0.22      0.22      0.23
                    Dispensing--Ph                                                                              
                    ase II.                                                                                     
R-410............  Marine Tanker                 6/96               7/97      0.0       0.0       0.0       0.0 
                    Loading.                                                                                    
R-419............  Tank Degassing               11/94               3/95      0.04      0.03      0.03      0.02
                    Operations.                                                                                 
R-420............  Pleasure Craft                6/97               7/98      0.0       0.08      0.08      0.08
                    Fuel Transfer.                                                                              
R-421............  Utility Engine                9/96               9/97      0.0       0.19      0.20      0.20
                    Refueling                                                                                   
                    Operations.                                                                                 
R-424............  Gasoline                      5/95               1/96      0.01      0.03      0.04      0.04
                    Transfer/                                                                                   
                    Dispensing.                                                                                 
R-425............  Enhanced                     12/95               5/97      1.45      1.21      1.07      0.95
                    Fugitive I/M                                                                                
                    Program.                                                                                    
R-606............  Soil                          9/95               9/95      0.10      0.10      0.10      0.11
                    Decontaminatio                                                                              
                    n.                                                                                          
----------------------------------------------------------------------------------------------------------------
\1\ ``R'' refers to ROG control measures, ``N'' refers to NOX control measures. The reduction estimates were    
  taken from the 1994 Ventura County AQMP (Tables 11-1 and 11-2). The reductions do not reflect the most recent 
  estimates in the 1995 AQMP revision. In addition, the table does not include measure R-303, Architectural     
  Coatings. Overall, the revised reduction estimates do not negatively impact ROP or attainment. If a SIP       
  revision with the revision reduction estimates and measure R 303 is submitted before EPA's final action, EPA  
  proposes to approve it without further opportunity for public comment.                                        

    (2) EPA Action. According to the State's submissions, these 
measures are relied upon in meeting the ROP and attainment requirements 
of the Act. Accordingly, and because the measures strengthen the SIP, 
EPA proposes to approve, under sections 110(k)(3) and 301(a) of the 
Act, the enforceable commitments to adopt and implement the control 
measures by the dates specified to achieve the emission reductions 
shown. EPA also proposes to assign credit to the measures for purposes 
of ROP and attainment. EPA approval of the adopted regulations will be 
completed in separate rulemakings in the future.
    d. ROP Provisions.
(1) ROP Emission Targets
    The 1994 AQMP (Chapter 11) and Volume IV of the CA SIP (Table E-3) 
describe the VOC emission reductions needed to meet ROP requirements 
based on Ventura's adjusted 1990 base year inventories. The SIP also 
provides emission estimates for the ROP milestone years by projecting 
the impacts of the control strategy and of anticipated changes in 
population, industrial activity, and other socio-economic factors. A 
summary of the ROP VOC targets and the projected VOC emissions is 
provided below in the table labeled ``Ventura ROP Forecasts and 
Targets.'' 24

    \24\ See 1994 SIP, Tables 11-3 through 11-14, and California 
Ozone SIP, page IV-33.
---------------------------------------------------------------------------

    The VOC reductions alone were not projected to be sufficient to 
meet the ROP target levels for milestone years after 1996. As discussed 
earlier (section II.B.1.b.iii.), reductions in NOX emissions may 
be substituted for VOC reductions so long as certain conditions are 
met. The Ventura plan meets those conditions and the corresponding 
NOX reductions substituted for VOC reductions are also shown in 
the table.

                    Ventura ROP Forecasts and Targets                   
                          [Tons per summer day]                         
------------------------------------------------------------------------
               Milestone year                  1996   1999   2002   2005
------------------------------------------------------------------------
1990 Base Year VOC Inventory................     85     85     85     85
VOC Inventory after Adopted Measures........     64     61     58     56
ROP VOC Target..............................     69     60     53     46
VOC Inventory Including Committals..........     64     61     58     56
VOC Shortfall...............................      0      1      5     10
NOX Substitution in VOC Equivalents 25......      0      1      5     10
------------------------------------------------------------------------

(2) 15% ROP Control Strategy

    \25\ See footnote 16.
---------------------------------------------------------------------------

    In general only adopted measures may be relied upon in meeting the 
15% ROP requirement. The Ventura control strategy for the 15% ROP 
requirement, therefore, excluded all committed control measures listed 
in the table above labeled ``Ventura Local Control Measures.'' The 
description of adopted measures relied upon in providing for this 
requirement is in the 1994 AQMP in Tables 6-1, 6-2, 11-1, and 11-2.
(3) Post-1996 ROP Control Strategy
    According to the submitted plan, the post-1996 ROP control strategy 
includes all those measures relied upon for the 15% ROP demonstration, 
plus any measures for which emissions reductions are shown for 
milestones after 1996.
(4) EPA Action
    EPA believes that the Ventura component of the 1994 SIP meets the 
CAA requirements for 15% ROP and post-1996 ROP. EPA is, therefore, 
proposing to approve Ventura's ROP plan under sections 182(b)(1) and 
182(c)(2) of the Act.
    e. Demonstration of Attainment. Ventura County is classified as a 
severe nonattainment area for ozone. As a result, the SIP must contain 
adequate control measures and commitments to demonstrate attainment of 
the ozone NAAQS by 2005.
(1) Control Strategy
    The control strategy for Ventura's SIP attainment demonstration 
includes the State and local measures identified above. The 
demonstration presumes the measures will be adopted and implemented by 
the dates shown, resulting in the emission reductions shown.

[[Page 10951]]

(2) Modeling and Attainment Demonstration
    The UAM analysis described below demonstrates that the control 
strategy discussed above will result in attainment of the ozone NAAQS. 
A summary of the emission reductions needed to attain the standard is 
provided below in the table labeled ``Emission Reductions Needed in 
Ventura,'' derived from the 1994 California Ozone SIP, Volume IV, Table 
E-1. Since the November 1994 submittal, additional modeling refinements 
and technical clarifications have resulted in a revised estimate of the 
reductions needed for attainment. These technical clarifications to the 
1994 SIP were submitted to EPA by CARB on February 6, 1996.\26\ The 
summary table below reflects the revised reductions needed for 
attainment.

    \26\ Prior to the February 6, 1996 CARB letter, EPA, CARB, and 
Ventura County APCD agreed on the need to clarify the attainment 
demonstration and federal assignments in the 1994 SIP submittal. 
This clarification was necessary because of two principle factors. 
Recent modeling indicated that moving the shipping channel was no 
longer essential for attainment of the ozone NAAQS in Ventura County 
and, on December 19, 1995, Ventura County adopted revisions to their 
AQMP which removed the measure requiring movement of the shipping 
channel.

                  Emission Reductions Needed in Ventura                 
                          [Tons per summer day]                         
------------------------------------------------------------------------
                                                             ROG    NOX 
------------------------------------------------------------------------
1990 Baseline Emissions Inventory.........................     87     81
Attainment Inventory......................................     45     52
Reductions Needed.........................................     42     29
------------------------------------------------------------------------

    A summary of the emission reductions projected from the SIP control 
strategy is provided below in the table labeled ``Ventura Attainment 
Demonstration,'' taken from the 1994 California Ozone SIP, Volume IV, 
Table E-2. As described above, the table below reflects the revised 
estimate of the reductions needed.

                    Ventura Attainment Demonstration                    
                        [In tons per summer day]                        
------------------------------------------------------------------------
                                                             ROG    NOX 
------------------------------------------------------------------------
Reductions from Adopted Measures..........................     30     24
Committed Local Measures..................................      5      1
Committed State Measures..................................      6      4
Reductions from National Measures \1\.....................      1      1
                                                           -------------
      Total...............................................     42     30
------------------------------------------------------------------------
\1\Credit shown is EPA's estimate of reductions from statutorily-       
  mandated national rules.                                              

    The Ventura area is classified as a Severe ozone nonattainment area 
based on a design value of .174 ppm, recorded at the Simi Valley and 
based on 1987-1989 data.
    Ventura's photochemical modeling analysis was based on two 
episodes, September 5-7, 1984 and September 16-17, 1984. The episodes 
were selected from the period for which an enhanced database was 
available from the 1984 South Central Coast Cooperative Aerometric 
Monitoring Program. The peak measured concentration for the September 
5-7 episode was .18 ppm, measured at the Casitas Pass site. The episode 
was representative of widespread, high ozone. The peak measured 
concentration for the September 16-17 episode was .14 ppm, also 
measured at Casitas Pass. The episode represents an episode with less 
transport of ozone and precursors from the South Coast Air Basin.
    For the 1994 AQMP, VCAPCD and their contractor used the UAM Version 
IV for the photochemical modeling exercise. The Diagnostic Wind model 
was used to generate meteorological input to the model. A discussion of 
the modeling can be found in Chapter 10 of the 1994 AQMP. The modeling 
was submitted as part of the November 1994 SIP.
    In 1994-5, CARB staff refined the modeling application by reviewing 
and modifying the input files to better reflect the most accurate 
information for the Ventura nonattainment area. These refinements and 
improvements are detailed in CARB's report, ``Revisions to the Base 
Case and Future Year Urban Airshed Model Simulations for Ventura County 
in Support of the 1994 State Implementation Plan.'' The report reflects 
improvements made to the previous modeling submitted as part of the 
1994 SIP. The modeling improvements were submitted by CARB on February 
6, 1996. The TSD contains information regarding the performance of the 
improved model application for the peak days of the episode. The 
performance of the model meets EPA criteria.
    The revised model application predicted peak ozone concentrations 
in the year 2005 of .12 ppm for the September 5-7 episode and .11 ppm 
for the September 16-17 episode.
(3) EPA Action
    EPA has determined that the Ventura attainment demonstration meets 
CAA requirements. EPA is therefore proposing to approve the Ventura 
modeling and attainment demonstration under section 182(c)(2)(A) of the 
Act.
    f. Overall EPA Action. EPA proposes to approve the Ventura ozone 
SIP with respect to the Act's requirements for emission inventories, 
control measures, modeling, and demonstrations of 15% ROP and post-1996 
ROP and attainment.
7. South Coast
    a. Identification of Plans. On September 9, 1994, the SCAQMD 
Governing Board adopted the South Coast 1994 Air Quality Management 
Plan (AQMP). On November 15, 1994, CARB modified the AQMP and adopted 
the ozone attainment, ozone ROP, and particulate matter (PM-10) Best 
Available Control Measures (BACM) component of the AQMP, which CARB 
then submitted to EPA to comply with ROP, attainment demonstration, and 
other requirements of the Act.27 On December 9, 1994, CARB 
submitted further revisions to the 15% ROP plan.28

    \27\ November 15, 1994 letter from Jacqueline Schafer, CARB, to 
Felicia Marcus, EPA, forwarding 1994 California SIP. The SIP 
includes a November 15, 1994 letter from James Boyd (CARB) to 
Felicia Marcus, EPA, forwarding the South Coast AQMP component of 
the SIP and CARB Board Resolution No. 94-61 approving the South 
Coast component. The South Coast component includes an October 6, 
1994 letter from James M. Lents (SCAQMD) to James Boyd (CARB) 
forwarding the 1994 South Coast AQMP and the SCAQMD Board Resolution 
94-36 approving the AQMP.
    \28\ On November 15, 1993, CARB submitted to EPA a rate-of-
progress plan intended to demonstrate that 1990 VOC emissions would 
be reduced by at least fifteen percent by 1996 pursuant to Section 
182(b)(1) of the Act. On April 13, 1994, EPA determined that this 
ROP plan was incomplete because it relied on controls not yet 
adopted in regulatory form. The 1994 SIP updates South Coast's 1993 
ROP plan in order to correct this deficiency.
---------------------------------------------------------------------------

    b. 1990 Base Year Inventories. The SIP provides detailed estimates 
of the VOC and NOX emissions that occurred in the South Coast in 
1990. These base year inventories are summarized in the table below 
labeled, ``1990 South Coast SIP Inventories.'' 29 A discussion of 
these inventories and of EPA's proposed action on them can be found in 
section II.C.1.a. of this notice.

    \29\ More detailed summaries of this inventory can be found in 
Appendices III-A and III-B of the 1994 AQMP.

[[Page 10952]]


                    1990 South Coast SIP Inventories                    
                          [Tons per summer day]                         
------------------------------------------------------------------------
                         Category                            VOC    NOX 
------------------------------------------------------------------------
Stationary................................................    666    245
Mobile....................................................    851   1116
                                                           -------------
      Total...............................................   1517   1361
------------------------------------------------------------------------

    c. SIP Control Measures.
(1) Description
    The State of California and the South Coast have already adopted 
many measures which will contribute to the necessary emissions 
reductions for meeting the 15% ROP and post-1996 ROP and attainment 
requirements. In addition, the 1994 SIP describes a series of rules 
that the South Coast has committed to adopt in order to reduce VOC and 
NOX emissions in the area. The table labeled ``South Coast Local 
Control Measures'' describes the dates by which the plan presumes 
adoption and implementation, and the emission reductions presumed to 
occur by each milestone, every 3 years from 1996 through the attainment 
year (2010), to the extent that information was available in the 
submitted plan.30 No reductions from local measures are assumed in 
the 15% ROP plan for 1996. The SCAQMD committed to adopt specific 
enforceable measures by the date specified in the table, or within 1 
year after the date of approval of the ozone plan, whichever is 
earlier.

    \30\ 1994 CARB Ozone SIP, Volume IV, Table A-5; CARB Ozone SIP 
Emission Reductions for South Coast; 1994 AQMP, Appendix I-C, Post-
1996 Federal Clean Air Act Requirements--Detailed Calculations.

[[Page 10953]]


                                                                               South Coast Local Control Measures                                                                               
                                                                                    [Tons per day of VOC/NOX]                                                                                   
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                 Adoption  Implementation                                                                                       
    Control measure No.       Control measure title      Implementing agency       date         dates          1996          1999          2002           2005           2008           2010    
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
CTS-01....................  VOC RECLAIM.............  SCAQMD...................     1995       1998-2010   ............  ............  ............  .............  .............  .............
CTS-02....................  Emission Reductions from  SCAQMD...................     1997       1998-2005         0/0        25.0/0        58.1/0        80.9/0         88.3/0         92.8/0    
                             Solvents and Coatings                                                                                                                                              
                             at Non-RECLAIM Sources.                                                                                                                                            
CTS-03....................  Consumer Product          SCAQMD...................  ........      1998-2005         0/0           0/0           0/0           0/0            0/0            0/0    
                             Labeling Program.                                                                                                                                                  
CTS-04....................  Public Awareness/         SCAQMD...................  ........      1997-1997         0/0           0/0           0/0           0/0            0/0            0/0    
                             Education Programs--                                                                                                                                               
                             Area Sources.                                                                                                                                                      
CTS-05....................  Further Emission          SCAQMD...................     1994       1996-1996      2.14/0        2.49/0        2.73/0         2.9/0         2.99/0         2.99/0    
                             Reductions from                                                                                                                                                    
                             Perchloroethylene Dry                                                                                                                                              
                             Cleaning Operations.                                                                                                                                               
CTS-07....................  Further Emission          SCAQMD...................     1997       2001-2006         0/0           0/0       27.49/0        40.5/0        60.65/0        62.26/0    
                             Reductions from                                                                                                                                                    
                             Architectural Coatings                                                                                                                                             
                             (Rule 1113).                                                                                                                                                       
FUG-01....................  Emission Reductions from  SCAQMD...................     1995       1996-1996      4.42/0        4.96/0        5.11/0        5.01/0         4.98/0         4.98/0    
                             Organic Liquid Transfer.                                                                                                                                           
FUG-02....................  Emission Reductions from  SCAQMD...................     1995       1996-1996      5.08/0        5.52/0        5.73/0        5.49/0         5.05/0         4.76/0    
                             Active Draining of                                                                                                                                                 
                             Liquid Products.                                                                                                                                                   
FUG-03....................  Further Emission          SCAQMD...................     1996       1998-1998         0/0           0/0           0/0           0/0            0/0            0/0    
                             Reductions from                                                                                                                                                    
                             Floating Roof Tanks.                                                                                                                                               
FUG-04....................  Further Emission          SCAQMD...................     1997       2000-2010         0/0           0/0         .75/0         .75/0          .75/0          .75/0    
                             Reductions of Fugitive                                                                                                                                             
                             Emissions.                                                                                                                                                         
RFL-01....................  Emission Reductions from  SCAQMD...................     1997       2000-2010         0/0           0/0         .04/0         .04/0          .05/0          .06/0    
                             Utility Engine                                                                                                                                                     
                             Refueling Operations.                                                                                                                                              
RFL-02....................  Further Emission          SCAQMD...................     1995       1996-1997      1.96/0        4.94/0        5.06/0         5.2/0         5.44/0         5.58/0    
                             Reductions from                                                                                                                                                    
                             Gasoline Dispensing                                                                                                                                                
                             Facilities.                                                                                                                                                        
RFL-03....................  Emission Reductions from  SCAQMD...................     1995       1996-1996       .74/0         .77/0         .80/0         .83            .86/0          .88/0    
                             Pleasure Boat Fueling                                                                                                                                              
                             Operations.                                                                                                                                                        
CMB-01A...................  Control of Emissions      SCAQMD...................     1997       1998-2000         0/0           0/.75         0/.79         0/.87          0/.89          0/.97  
                             from Miscellaneous                                                                                                                                                 
                             Combustion.                                                                                                                                                        
CMB-01B...................  Control of Emissions      SCAQMD...................     1997       1998-2000         0/0           0/.12         0/.26         0/.26          0/.28          0/.28  
                             from Small Boilers and                                                                                                                                             
                             Process Heaters.                                                                                                                                                   
CMB-01C...................  Control of Emissions      SCAQMD...................     1997       1998-2000         0/0           0/.45         0/.47         0/.52          0/.53          0/.57  
                             from Curing and Drying                                                                                                                                             
                             Ovens.                                                                                                                                                             
CMB-01D...................  Control of Emissions      SCAQMD...................     1997       1998-2000         0/0           0/0           0/.52         0/.55          0/.60          0/.65  
                             from Afterburners.                                                                                                                                                 
CMB-01E...................  Control of Emissions      SCAQMD...................     1997       1998-2000         0/0           0/0           0/.06         0/.06          0/.06          0/.08  
                             from Metal Melting                                                                                                                                                 
                             Furnaces.                                                                                                                                                          
CMB-01F...................  Further Emission          SCAQMD...................     1997       1998-2008         0/0        3.36/4.91     3.79/4.64     4.31/3.78      4.71/2.46      4.81/1.4  
                             Reductions from                                                                                                                                                    
                             Internal Combustion                                                                                                                                                
                             Engines.                                                                                                                                                           
CMB-02A...................  Control of Emissions      SCAQMD...................     1997       1998-2000         0/0           0/3.87        0/4.21        0/4.56         0/4.92         0/5.16 
                             from Miscellaneous                                                                                                                                                 
                             Combustion.                                                                                                                                                        
CMB-02B...................  Control of Emissions      SCAQMD...................     1997       1998-2000         0/0           0/1.34        0/2.98        0/3.19         0/3.40         0/3.55 
                             from Small Boilers and                                                                                                                                             
                             Process Heaters.                                                                                                                                                   
CMB-02C...................  Control of Emissions      SCAQMD...................     1997       1998-2000         0/0           0/1.11        0/1.08        0/1.15         0/1.21         0/1.26 
                             from Curing and Drying                                                                                                                                             
                             Ovens.                                                                                                                                                             
CMB-02F...................  Further Controls of       SCAQMD...................     1997       1998-2008         0/0        1.52/6.83     1.74/6.62     1.99           2.19           2.29/2.20 
                             Emissions from Internal                                                                                                                                            
                             Combustion Engines.                                                                                                                                                
CMB-03....................  Area Source Credits for   SCAQMD...................     1995       1997-2000         0/0           0/0           0/0           0              0              0      
                             Commercial and                                                                                                                                                     
                             Residential Combustion                                                                                                                                             
                             Equipment.                                                                                                                                                         
CMB-04....................  Area Source Credits for   SCAQMD...................     1995       1997-2000         0/0           0/0           0/0           0              0              0      
                             Energy Conservation.                                                                                                                                               
CMB-05....................  Clean Stationary Fuels..  SCAQMD...................     1995       1996-2008         0/0        1.22/1.01     2.27/1.76     3.53           3.99           4.09      
CMB-06....................  Emission Standard for     SCAQMD/..................     1994       1996-2002         0/.56         0/2.28        0/7.21        0              0              0      
                             New Residential and      local                                                                                                                                     
                             Commercial Water         govts                                                                                                                                     
                             Heaters.                                                                                                                                                           
CMB-07....................  Emission Reductions from  SCAQMD...................     1997       1999-1999         0/0           0/0           0/0           0              0              0      
                             Petroleum Refinery                                                                                                                                                 
                             Flares.                                                                                                                                                            
CMB-10....................  Emission Reductions from  SCAQMD...................     1995       1998-1998         0/0           0/.41         0/.42         0              0              0      
                             Glass Melting Furnaces                                                                                                                                             
                             (Non-RECLAIM).                                                                                                                                                     
CMB-11....................  Emission Reductions from  SCAQMD...................     1995            1996         0/.64         0/.72         0/.68         0              0              0      
                             Non-RECLAIM                                                                                                                                                        
                             Incinerators.                                                                                                                                                      
MSC-01....................  Promotion of Lighter      SCAQMD/..................  ........      1996-1998         0/0           0/0           0/0           0/0            0/0            0/0    
                             Color Roofing and Road   local                                                                                                                                     
                             Materials and Tree       govts                                                                                                                                     
                             Planting.                                                                                                                                                          
MSC-02....................  In-Use Compliance         SCAQMD...................     1996       1997-1997         0/0           0/0           0/0           0/0            0/0            0/0    
                             Program for Air                                                                                                                                                    
                             Pollution Control                                                                                                                                                  
                             Equipment.                                                                                                                                                         
PRC-02....................  Further Emission          SCAQMD...................     1996       1998-2001         0/0         .24/0         .64/0         .68/0          .72/0          .75/0    
                             Reductions from                                                                                                                                                    
                             Bakeries.                                                                                                                                                          
PRC-03....................  Emission Reductions from  SCAQMD...................     1994       1996-2001      1.23/0        8.55/0       10.77/0       11.14/0        11.49/0         11.7/0    
                             Restaurant Operations.                                                                                                                                             
PRC-04....................  Emission Reductions from  SCAQMD...................     1996       1997-1997         0/0         .13/0         .13/0         .13/0          .13/0          .13/0    
                             Rubber Products                                                                                                                                                    
                             Manufacturing.                                                                                                                                                     
PRC-05....................  Emission Reductions from  SCAQMD...................     1996       1997-1997         0/0           0/0           0/0           0/0            0/0            0/0    
                             Malt Beverage                                                                                                                                                      
                             Production Facilities                                                                                                                                              
                             and Wine or Brandy                                                                                                                                                 
                             Making Facilities.                                                                                                                                                 
SIP-01....................  SIP Amendments--for       SCAQMD...................    (\1\)       1998-1998         0/0         .06/0         .06/0         .06/0          .05/0          .05/0    
                             Miscellaneous Sources.                                                                                                                                             
WST-01....................  Emission Reductions from  SCAQMD...................     1995       1996-2003      5.63/0        8.39/0        8.86/0        9.31/0         9.77/0        10.07/0    
                             Livestock Waste.                                                                                                                                                   
WST-02....................  Emission Reductions from  SCAQMD...................     1997       1998-2000         0/0           0/0           0/0           0/0            0/0            0/0    
                             Composting of Dewatered                                                                                                                                            
                             Sewage Sludge.                                                                                                                                                     
WST-03....................  Waste Burning...........  .........................     1996       1998-1998        .7/0          .7/0          .7/0          .6/0          .06/0          .06/0    
WST-04....................  Disposal of Materials     .........................     1996       1998-2001         0/0          .8/0        2.12/0        2.21/0         2.31/0         2.37/0    
                             Containing Volatile                                                                                                                                                
                             Organic Compounds.                                                                                                                                                 
TCM-01....................  Transportation            SCAG.....................     1997       2000-2010         0/0           0/0           0/0           0/0            0/0            0/0    
                             Improvements.                                                                                                                                                      
ISR-01....................  Special Event Centers     SCAQMD/..................     1995       1997-2010        .9/1.03      .77/.84       1.4/1.67     1.07/1.43       .81/1.26      1.33/2.2  
                             (SCAG Measure TCM #10).  local                                                                                                                              7      
                                                      govts                                                                                                                                     

[[Page 10954]]
                                                                                                                                                                                                
ISR-02....................  Shopping Centers (SCAG    SCAQMD/..................     1996       1997-2010         0/0        1.36/1.5      2.30/2.73     1.75/2.35      1.34/2.07      1.69/2.8  
                             Measure TCM #11).        local                                                                                                                              9      
                                                      govts                                                                                                                                     
ISR-03....................  Registration and          SCAQMD...................     1995       1997-2000         0/0           0/0           0/0           0/0            0/0            0/0    
                             Commercial Vehicles                                                                                                                                                
                             (SCAG Measure TCM #12).                                                                                                                                            
ISR-04....................  Airport Ground Access     SCAQMD/..................     1997       1999-2010         0/0         .38/.42       .77/.92       .59/.79        .45/.7         .38/.65  
                             (SCAG Measure TCM #13).  local                                                                                                                                     
                                                      govts                                                                                                                                     
ISR-05....................  Trip Reduction for        SCAQMD/..................     1995       1997-2010         0/0         .21/.24       .47/.63       .46/.72        .35/.64        .38/.74  
                             Schools (SCAG Measure    local                                                                                                                                     
                             TCM #14).                govts                                                                                                                                     
ISR-06....................  Enhanced Rule 1501 (SCAG  SCAQMD/..................     1996       1997-2000         0/0        2.86/3.15     3.01/3.59     2.30/3.08      1.75/2.72      1.48/2.5  
                             Measure TCM #15).        local                                                                                                                              1      
                                                      govts                                                                                                                                     
ISR-07....................  Parking Cash-Out (SCAG    SCAQMD/..................     1995       1995-1997        .2/.22       .17/.17       .13/.14       .10/.12        .08/.11        .06/.1   
                             Measure TCM #16).        local                                                                                                                                     
                                                      govts                                                                                                                                     
MON-01....................  Emission Reduction        SCAQMD/..................     1996       1996-2010         0/0           0/0           0/0           0/0            0/0            0/0    
                             Credits for Low-         CARB                                                                                                                                      
                             Emission Retrofit Fleet                                                                                                                                            
                             Vehicles.                                                                                                                                                          
MON-02....................  Eliminate Excessive Car   SCAQMD/..................  ........  ..............        0/0           0/0           0/0           0/0            0/0            0/0    
                             Dealership Vehicle       local                                                                                                                                     
                             Starts; Educational.     govts                                                                                                                                     
MON-04....................  Eliminate Excessive Curb  SCAQMD/..................  ........  ..............        0/0           0/0           0/0           0/0            0/0            0/0    
                             Idling; Educational.     local                                                                                                                                     
                                                      govts                                                                                                                                     
MON-05....................  Emissions Reduction       SCAQMD...................     1995       1995-2010         0/0           0/0           0/0         .12/.65        .11/.65        .11/.65  
                             Credit for Heavy-Duty                                                                                                                                              
                             Buses.                                                                                                                                                             
MON-06....................  Emissions Reduction       SCAQMD...................     1995   ..............        0/0           0/0           0/0           0/0            0/0            0/0    
                             Credit for Heavy-Duty                                                                                                                                              
                             Trucks.                                                                                                                                                            
MON-07....................  Emission Reductions for   SCAQMD...................     1995       1996-1999     25.54/0        5.15/0           0/0           0/0            0/0            0/0    
                             High Emitters.                                                                                                                                                     
RME-01....................  Regional Mobility         .........................  ........  ..............     2.37/0        11.3/1.15    15.98/6.58     18.5/13.74    20.64/21.77    22.26/27.67
                             Adjustment.                                                                                                                                                        
MOF-03....................  Emission Reduction        SCAQMD/..................     1995       1996-2010         0/0           0/0           0/0           0/0            0/0            0/0    
                             Credits for Leaf         local                                                                                                                                     
                             Blowers.                 govts                                                                                                                                     
MOF-04....................  Off-Road Mobile Source    SCAQMD...................     1995       1996-2010         0/0           0/0           0/0           0/0            0/0            0/0    
                             Emission Reduction                                                                                                                                                 
                             Credit Programs.                                                                                                                                                   
ATT-01....................  Telecommunications......  SCAQMD/..................  ........      1995-2010         0/0           0/0           0/0           0/0            0/0          0.0      
                                                      SCAG/....................                                                                                                                 
                                                      local                                                                                                                                     
                                                      govts                                                                                                                                     
ATT-02....................  Advanced Shuttle Transit  SCAQMD/..................  ........      1995-2010         0/0           0/0           0/0           0/0            0/0            0/0    
                                                      SCAG/....................                                                                                                                 
                                                      local                                                                                                                                     
                                                      govts                                                                                                                                     
ATT-03....................  Zero Emission Vehicle/    Partnership..............  ........      1995-2010         0/0           0/0           0/0           0/0            0/0            0/0    
                             Infrastructure.                                                                                                                                                    
ATT-04....................  Alternative Fuel          Partnership..............  ........      1995-2010         0/0           0/0           0/0           0/0            0/0            0/0    
                             Vehicles/Infrastructure.                                                                                                                                           
ATT-05....................  Intelligent Vehicle       SCAQMD/..................  ........      1995-2010         0/0           0/0           0/0           0/0            0/0            0/0    
                             Highway Systems.         SCAG/                                                                                                                                     
                                                      local                                                                                                                                     
                                                      govts                                                                                                                                     
MKT-01....................  Emission/VMT............  SCAG.....................  ........      2008-2010         0/0           0/0           0/0           0/0            0/0            0/0    
MKT-02....................  At-the-Pump Fee.........  SCAG.....................  ........      2008-2010         0/0           0/0           0/0           0/0            0/0            0/0    
FSS-01....................  Stage I Episode Plans...  SCAQMD...................  ........      2005-2010         0/0           0/0           0/0           0/0            0/0            0/0    
ADV-CTS-01................  Advanced Technology--     SCAQMD...................  ........  ..............        0/0           0/0           0/0           0/0        14.35/0        23.88/0    
                             Coating Technologies.                                                                                                                                              
ADV-FUG...................  Advanced Technology--     SCAQMD...................  ........  ..............        0/0           0/0           0/0           0/0        14.13/0        23.11/0    
                             Fugitive Emission                                                                                                                                                  
                             Controls.                                                                                                                                                          
ADV-PRC...................  Advanced Technology--     SCAQMD...................  ........  ..............        0/0           0/0           0/0           0/0         7.55/0        12.27/0    
                             Process Related                                                                                                                                                    
                             Emissions.                                                                                                                                                         
ADV-UNSP..................  Advanced Technology--     SCAQMD...................  ........  ..............        0/0           0/0           0/0           0/0        39.45/0        66.97/0    
                             Unspecified Stationary                                                                                                                                             
                             Source Controls.                                                                                                                                                   
ADV-CTS-02................  Advanced Technology--     SCAQMD...................  ........  ..............        0/0           0/0           0/0           0/0            0/0        54.69/0    
                             Coating Technologies.                                                                                                                                              
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
\1\ Various.                                                                                                                                                                                    



[[Page 10955]]

(2) EPA Action
    EPA proposes to approve, under sections 110(k)(3) and 301(a) of the 
Act, the control measures, including the commitment of the SCAQMD to 
adopt and implement rules by scheduled dates to achieve specified 
emission reductions. EPA action on the SCAQMD's adopted regulations 
will be taken in separate rulemakings following their submittal as SIP 
revisions.
    The SCAQMD is currently considering adoption of a revised 
regulatory agenda that shifts to 1996 all rule adoption dates that have 
lapsed. In the final action on the South Coast SIP, EPA intends to 
approve substitute dates if adopted by the SCAQMD and submitted as a 
SIP revision before EPA's final action on the ozone SIP. The amended 
schedule must be accompanied by a demonstration that this revision 
would not interfere with any applicable requirement of the Act. Unless 
the amended schedule and demonstration are submitted, EPA cannot 
approve and credit the measures whose adoption dates have passed.
    EPA wishes to encourage the SCAQMD to pursue the most aggressive 
possible implementation of the AQMP, which remains an otherwise valid 
and critically important blueprint for progress and eventual attainment 
of the ozone NAAQS. EPA emphasizes that the failure of the SCAQMD to 
adopt most of the rules scheduled for adoption in 1995 is not evidence 
either that the AQMP is impractical or that the SCAQMD has failed in 
meeting its overall commitment to air quality progress. The AQMP needs 
amendment at this time only to replace the initial AQMP adoption dates 
with an updated timetable for rule adoption.
    d. ROP Provisions.
(1) ROP Emission Targets
    The 1994 SIP describes the VOC emission reductions needed to meet 
ROP requirements based on South Coast's adjusted 1990 base year 
inventories.31 The SIP also provides emission estimates for the 
ROP milestone years by projecting the impacts of adopted control 
measures and of anticipated changes in population, industrial activity, 
and other socio-economic factors. A summary of the ROP VOC targets and 
the projected VOC emissions is provided below in the table labeled, 
``South Coast ROP Forecasts.'' 32

    \31\ See 1994 AQMP, Appendix I-C.
    \32\ See 1994 AQMP, Appendix I-C, Table 3-4, and Attachment A. 
The AQMP also calculates a ROP target for NOX and computes ROP 
emissions reductions for NOX, but the AQMP depends upon 
NOX substitution only for the 1999, 2002, and 2005 ROP 
milestones.

                                            South Coast ROP Forecasts                                           
                                            [In tons per summer day]                                            
----------------------------------------------------------------------------------------------------------------
                                        1996         1999         2002         2005         2008         2010   
----------------------------------------------------------------------------------------------------------------
VOC emissions to meet ROP target..       1074.4        976.6        846.6        732.2        617.6        544.1
VOC emissions with plan reductions       1066.4        976.6        846.6        732.2        470.0        312.8
----------------------------------------------------------------------------------------------------------------

(2) 15% ROP Control Strategy
    In general only adopted measures may generally be credited towards 
the 15% ROP requirement. In addition, pre-1990 Federal motor vehicle 
emission controls, Federal RVP limits on gasoline, and several other 
existing measures cannot be credited in ROP plans. The control strategy 
for the 15% ROP requirement, therefore, includes all VOC control 
measures listed above, except for those showing no emission reductions 
in the 1996 column.
(3) Post-1996 ROP Control Strategy
    The post-1996 ROP control strategy includes all those measures 
listed in above, except for those showing no emissions for the ROP 
milestone years. As discussed, the SIP identifies no surplus measures 
for the post-1996 ROP requirements. Therefore, all of the VOC emission 
reductions in the post-1996 ROP control strategy are needed to meet the 
post-1996 ROP requirements.
(4) EPA Action
    EPA believes that the South Coast component of the 1994 SIP meets 
the CAA requirements for ROP. EPA is, therefore, proposing to approve 
South Coast's 15% ROP and post-1996 ROP plans under sections 182(b)(1) 
and 182(c)(2) of the Act.
    e. Demonstration of Attainment. The Los Angeles-South Coast Air 
Basin Area is classified as an extreme nonattainment area for ozone. As 
a result, the SIP must contain adequate control measures and 
commitments to demonstrate attainment of the ozone NAAQS by 2010.
(1) Control Strategy
    The control strategy for South Coast's SIP attainment demonstration 
includes all of the State and local measures identified above. Among 
those measures are several ``new-technology'' measures, which are 
needed to achieve reductions beyond what could be accomplished with 
existing control technologies or control techniques.
    The 1990 Amendments to the Act added section 182(e)(5), which 
applies exclusively to extreme ozone areas. This provision authorizes 
the State to use conceptual, as yet unadopted measures for its ozone 
attainment demonstration and ROP after the year 2000, if these measures 
anticipate new or improved technology or control techniques, the 
measures are not needed to meet the progress requirements for the first 
10 years, and the State commits to submit contingency measures to be 
implemented if the anticipated technologies do not achieve planned 
reductions.
    CARB and the SCAQMD included with their new-technology measures 
commitments to submit contingency measures and a demonstration that 
reductions from the CARB and SCAQMD new-technology measures are not 
needed to achieve the first 10 years of required progress. Because the 
section 182(e)(5) approval criteria are met by both the CARB and SCAQMD 
submittals, EPA issued final approval of the new-technology measures on 
August 21, 1995. See 60 FR 43379 for further details on the new-
technology control measures and EPA's action on them. EPA has therefore 
already approved and credited the following SCAQMD and CARB new-
technology provisions.
    Because much of the needed reductions in the 1994 South Coast plan 
is now assigned to these conceptual measures, air quality progress in 
future years requires substantial State and local staff and resource 
investment at this time to lay the foundations for the necessary 
advances in control technology or control techniques. EPA urges both 
CARB and the SCAQMD to set out the timing and stages of projected 
control measure development, and to involve the public and the

[[Page 10956]]
regulated community in a process by which they can understand and 
contribute to the Agency's steady progress in developing the control 
approaches. The SCAQMD's annual report to the California Legislature is 
one mechanism for displaying the District's technology advancement 
projects and ensuring that necessary resource needs are identified.
    Finally, EPA also encourages both CARB and the SCAQMD to reduce the 
dimensions of the section 182(e)(5) component of the plan by 
substituting near-term control regulations as soon as these controls 
can be identified, developed, and adopted. Such action not only 
comports with the Act's requirements for attainment ``as expeditiously 
as practicable'' (see, for example, section 181(a)(1)) but also 
accelerates air quality progress in the interim, both within the SCAB 
and in downwind nonattainment areas.

SCAQMD New-Technology Measures

    Advance Tech-CTS (Coating Technologies), ADV-CTS-01, adoption 2003, 
23.9 tpd ROG;
    Advanced Tech-Fugitives, ADV-FUG, adoption 2003, 23.1 tpd ROG;
    Advance Tech-Process Related Emissions, ADV-PRC, adoption 2003, 
12.3 tpd ROG;
    Advance Tech-Unspecified, Stationary Sources, ADV-UNSP, adoption 
2003, 67 tpd ROG;
    Advance Tech-CTS (Coatings Technologies), ADV-CTS-02, 54.7 tpd ROG.

CARB New-Technology Measures

    Improved Control Technology for LDVs, M-2, adoption 2000, 
implementation 2004-5, 2010 emission reductions--10 tpd ROB, 15 tpd 
NOX;
    Off-road diesel equipment--2.5 g/bhp-hr NOX standard, M-9, 
adoption 2001, implementation 2005, 2010 emission reductions--3 tpd 
ROG, 31 tpd NOX;
    Consumer products advanced technology and market incentives 
measures, CP-4, adoption 2005, implementation 2009, 2010 emission 
reductions 46 tpd ROG;
    Additional measures, 2010 emission reductions 79 tpd ROG, 60 tpd 
NOX. The measures include possible market-incentive measures and 
possible operational measures applicable to heavy-duty vehicles.
(2) Modeling and Attainment Demonstration
    The 1994 SIP describes urban airshed modeling analysis performed to 
demonstrate that the control strategy described above will result in 
NAAQS attainment. A summary of the emission reductions needed to attain 
the standard is provided below in the table labeled, ``Emission 
Reductions Needed in South Coast.''

                Emission Reductions Needed in South Coast               
                          [Tons per summer day]                         
------------------------------------------------------------------------
                                                             VOC    NOX 
------------------------------------------------------------------------
1990 Baseline Emissions Inventory.........................   1517   1361
Carrying Capacity.........................................    323    553
Reductions Needed.........................................   1194    808
------------------------------------------------------------------------

    A summary of the emission reductions projected from the SIP control 
strategy is provided below in the table labeled, ``South Coast 
Attainment Demonstration.''

                  South Coast Attainment Demonstration                  
                          [Tons per summer day)                         
------------------------------------------------------------------------
                                                             VOC    NOX 
------------------------------------------------------------------------
Reductions from Adopted measures..........................    463    429
Committed Local measures..................................    453     43
Committed State measures..................................    231    227
Assigned Federal measures.................................     47    109
                                                           -------------
      Total...............................................   1194    808
------------------------------------------------------------------------

    The SIP attainment demonstration was based on a modeling simulation 
of 4 episodes of high ozone from the 1987 intensive air quality study. 
In addition, one episode of very high ozone (.36 ppm) on June 5-7, 1985 
was selected. The September 5-7, 1987 episode represents typical high 
ozone episode, with a peak concentration of .33 ppm. The Urban Airshed 
Model was used to model air quality. The wind field were generated 
using the EPA Diagnostic Wind Model.
    The model application does not meet all EPA performance criteria 
with the unadjusted mobil source inventory. The base case indicates a 
bias of -25% to -71%, indicating that the model tends to underpredict 
the peak ozone concentration. In the sensitivity analysis with the 
motor vehicle emission inventory increased by a factor of two, the 
model performance is enhanced. The model predicts higher ozone values 
for both the base and future years. Under the proposed emission 
reduction strategy but with the grown motor vehicle inventory, the 
model still predicts attainment of the standard by 2010.
    Key uncertainties in the modeling analysis include mobile source 
and biogenic emission inventory uncertainties. A 1997 field study 
designed to study air quality in the Southern portion of the state of 
California should improve the performance of the model. The model 
inputs and performance are discussed in greater detail in the TSD.
(3) EPA Action
    Despite the stringent existing State and local regulations and the 
ambitious commitments by CARB and SCAQMD, the ozone attainment 
demonstration for the SCAB is insufficient as submitted by the State 
since, without any fall back State commitments, it depends upon 
additional reductions, stemming from assignments to EPA to establish 
specific future controls on national and international mobile sources 
and EPA is not obligated by statute or court order to do so. As 
discussed above, EPA has concluded that, while credit may be taken for 
those national rules that are statutorily mandated, EPA does not 
propose to credit the California SIP with Federal controls that are 
discretionary. With respect to the South Coast SIP, the table titled 
``Federal Assignments in the California SIP for the South Coast'' 
indicates what emission reductions are assigned by the State to EPA for 
discretionary rules.

      Federal Assignments in the California SIP for the South Coast     
            [Reductions from discretionary national measures]           
------------------------------------------------------------------------
                                                              SIP 2010  
                                                             reductions 
                        SIP measure                        -------------
                                                             ROG    NOX 
------------------------------------------------------------------------
M6--heavy-duty diesel vehicles (2.0 g/bhp-hour NOX                      
 standard)................................................    1.5   15.5
M10--nonroad diesel equipment (2.5 g/bhp-hour NOX                       
 standard)................................................    5.3   44.2
M12--industrial equipment, gas and LPG....................   25.1   12.6
M13--marine vessels \1\...................................      0    1.7
M14--trains \2\...........................................      0    7.2
M15--planes...............................................    2.7    4.1
                                                           -------------
      Total Reductions....................................   34.6   85.3
------------------------------------------------------------------------
\1\ SIP Measure M13 includes both the statutorily-mandated ship controls
  and discretionary controls on ocean-going ships. The emissions        
  reductions shown are those beyond what EPA estimates from the         
  statutorily-mandated ship controls, which were proposed on November 9,
  1994 (59 FR 55930).                                                   

[[Page 10957]]
                                                                        
\2\ The SIP includes in Measure M14 both the statutorily-mandated       
  national locomotive emission standards and additional reductions to be
  achieved in the South Coast through a provision that requires that by 
  2010 the locomotive fleet in the SCAB will emit on average no more    
  than the 2005 emissions level for new locomotives. The emission       
  reductions shown are those specific to the South Coast, in excess of  
  reductions that would result from the national standards alone.       


    The unusually high emissions associated with these sources in the 
SCAB is in part a reflection of the South Coast's dominant role as a 
Pacific Rim trade center, heavily dependent upon every form of goods 
transportation. For example, the Ports of Long Beach and Los Angeles, 
now the busiest ports in the nation, annually move goods valued at 
almost $150 billion, using a complex intermodal network of ships, 
trains, trucks, airplanes, and every variety of loading and handling 
equipment.
    While stationary, area source, and light- and medium-duty vehicle 
emissions are projected to decline very significantly as a result of 
State and local control measures applicable in the SCAB, emissions from 
the remaining mobile source categories are predicted to increase 
substantially through the attainment year in the absence of further 
controls.
    EPA and CARB are already engaged in a cooperative process involving 
engine manufacturers and other stakeholders to review the potential for 
establishing standards for new heavy-duty motor vehicle engines, heavy-
duty nonroad engines, and controls or prohibitions on fuels and fuel 
additives, in accordance with the terms of EPA's authority in sections 
202(a)(3), 213, and 211(c) of the Act. This process of evaluating the 
appropriateness of new national standards and issuing standards in 
formal rulemaking is not expected to be concluded until mid-1997.
    Moreover, international standard setting is now in progress under 
the jurisdiction of the International Maritime Organization and the 
International Civil Aviation Organization relating to ocean-going ships 
and commercial aircraft, respectively. Again, by mid-1997 greater 
certainty is expected regarding any new international emissions control 
standards and the degree to which these standards would affect 
predicted levels of SCAB emissions in 2010.
    In view of the unique relevance to the SCAB of these ongoing 
standard-setting projects, EPA believes that it is appropriate to 
examine further the extent to which specific additional mobile source 
controls might contribute to ozone attainment in the SCAB. Through June 
1997, EPA will continue to engage in a consultative process with CARB, 
the SCAQMD, and other stakeholders to examine the potential for 
additional mobile source controls that can contribute to progress and 
attainment. This review will focus not only on unilateral Federal 
controls but also on the potential for cooperative and community-based 
controls that reconcile, to the greatest extent practicable, State/
local interests and the legitimate concerns of interstate and 
international commerce. EPA expects that the Agency and the State 
entities will continue to work cooperatively to identify additional 
measures that are appropriate and feasible for each party to pursue. As 
discussed above in section II.B.2., EPA proposes to make an enforceable 
commitment to undertake rulemakings, after the consultative process, on 
control measures needed to achieve the emission reductions which are 
determined to be appropriate for EPA.
    EPA proposes to approve the South Coast attainment demonstration if 
CARB submits, before EPA's final action, an enforceable SIP commitment 
to adopt and submit as a SIP revision:
    (a) A revised attainment demonstration for the South Coast as 
appropriate after the consultative process. This SIP revision would be 
due December 31, 1997; and
    (b) Enforceable emission limitations and other control measures 
needed to achieve the emission reductions which are determined to be 
appropriate for the State. This SIP revision would be due no later than 
December 31, 1999.
    EPA believes that this gap-filling commitment and schedule for 
additional SIP submissions for the SCAB is a reasonable application of 
the Clean Air Act requirements for SIP submissions to the current 
circumstances. EPA is mindful of the requirement in Clean Air Act 
section 182(c)(2)(A) for submission of an attainment demonstration by 
November 15, 1994. The SCAB has submitted modeling coupled with SIP 
measures and commitments that provide the great bulk of reductions 
needed for attainment. Granting additional time, as described above, 
for the remaining measures is consistent with the statutory scheme 
because the time delays are brief, in the context of the SCAB 
attainment process, and EPA intends to ensure that there will be no 
adverse impact on progress, attainment, or any other Part D requirement 
as a result of the extended deadlines. EPA wishes to emphasize that the 
South Coast attainment demonstration is clearly dependant on the 
ability of the State and local agencies to faithfully adhere to their 
rule adoption schedule. Their failure to do so will clearly jeopardize 
the attainment demonstration no matter what resolutions are achieved 
through the consultative process.
    The South Coast attainment demonstration relies, in part, on 
reductions from a fully-enhanced I/M program. As discussed in EPA's 
proposed approval of California's enhanced I/M program (see section 
II.A.2.c.), credits associated with this control measure will become 
permanent following the State's submission of the required analysis 
demonstrating that the enhanced I/M program is achieving the emission 
reductions claimed in the attainment demonstration. At that point, 
EPA's approval of the South Coast attainment demonstration will also 
become permanent.
    EPA believes that the current modeled attainment demonstration is 
valid insofar as it projects attainment by the statutory attainment 
date. EPA proposes to approve the modeling analysis at this time.
    f. Overall EPA Action. EPA proposes to approve the South Coast 
ozone SIP with respect to the Act's requirements for emission 
inventories and demonstrations of 15% ROP and post-1996 ROP. EPA also 
proposes to approve the State and local control measures and the 
modeling analysis. With respect to the attainment demonstration, EPA 
proposes to approve the attainment demonstration portion of the SIP if 
the State submits, before EPA's final action on the ozone SIP, a 
commitment to adopt a revised attainment demonstration and gap-filling 
measures, if any are necessary after EPA's consultative process.
8. Southeast Desert
    a. Identification of Plans. The Southeast Desert Modified Air 
Quality Maintenance Area (``Southeast Desert'') is classified as a 
severe-17 area based on a .24 ppm ozone design value measured in 
Banning. Section 181(a)(2) of the Act

[[Page 10958]]

establishes a severe-17 classification for severe areas with a 1988 
ozone design value between .19 ppm and .28 ppm, allowing these areas 17 
years (rather than 15 years) to attain the ozone NAAQS. The Southeast 
Desert covers the Victor Valley/Barstow region in San Bernardino County 
(``Mojave''), the Coachella Valley/San Jacinto region in Riverside 
County (``Coachella''), and the Antelope Valley region in Los Angeles 
County (``Antelope''). The first of these areas is the responsibility 
of the Mojave Desert Air Quality Management District (MDAQMD). The 
second and third areas are the responsibility of the SCAQMD. Separate 
ROP and attainment demonstrations were prepared for each of the areas. 
Air quality in all three areas is overwhelmingly impacted by transport 
of ozone and ozone precursors from the South Coast Air Basin.
    On September 9, 1994, the SCAQMD Governing Board adopted the 1994 
Air Quality Management Plan for the Coachella-San Jacinto Planning Area 
(Appendix I-B of the South Coast 1994 AQMP) and the 1994 Air Quality 
Management Plan for Antelope Valley (Appendix I-A of the South Coast 
1994 AQMP).33 On October 26, 1994, the MDAQMD Board adopted the 
post-1996 Attainment Demonstration and Reasonable Further Progress Plan 
for the San Bernardino County Portion of the Southeast Desert AQMA, and 
the Rate-of-Progress Plan for the San Bernardino County Portion of the 
Southeast Desert AQMA.34

    \33\ November 15, 1994 letter from Jacqueline Schafer, CARB, to 
Felicia Marcus, EPA, forwarding the 1994 California Ozone SIP. The 
SIP includes a November 15, 1994 letter from James Boyd (CARB) to 
Felicia Marcus, EPA, forwarding the South Coast AQMP component of 
the SIP and CARB Board Resolution No. 94-61 approving the South 
Coast component. The South Coast component includes an October 6, 
1994 letter from James M. Lents (SCAQMD) to James Boyd (CARB) 
forwarding the 1994 South Coast AQMP and the SCAQMD Board Resolution 
94-36 approving the AQMP. On November 15, 1993, CARB submitted to 
EPA a rate-of-progress plan intended to demonstrate that 1990 VOC 
emissions would be reduced by at least fifteen percent by 1996 
pursuant to Section 182(b)(1) of the Act. On April 13, 1994, EPA 
determined that this ROP plan was incomplete because it relied on 
controls not yet adopted in regulatory form. The 1994 SIP updates 
South Coast's 1993 ROP plan in order to correct this deficiency.
    \34\ November 15, 1994 letter from James Boyd (CARB) to Felicia 
Marcus, EPA, forwarding the MDAQMD portion of the SDMAQMA ozone SIP 
and CARB Resolution No. 94-64 approving the Mojave Desert Plan. 
Among other things, this submittal modifies an earlier 15% 
Reasonable Further Progress Demonstration, adopted on March 23, 
1994. EPA deemed this earlier SIP submittal incomplete on April 13, 
1994.
---------------------------------------------------------------------------

    b. 1990 Base Year Inventories. The SIP provides detailed estimates 
of the actual VOC and NOX emissions that occurred in 1990 in each 
of the three portions of the Southeast Desert. These base year 
inventories are summarized in the table labeled ``1990 Southeast Desert 
SIP Inventories.'' More detailed inventory breakdowns appear in Chapter 
3 of Appendix I-B of the South Coast 1994 AQMP (Coachella), Chapter 3 
of Appendix I-A of the South Coast 1994 AQMP (Antelope), and Appendix A 
of the Mojave RFP Plan.

                                      1990 Southeast Desert SIP Inventories                                     
                                              [Tons per summer day]                                             
----------------------------------------------------------------------------------------------------------------
                                            Coachella                 Antelope                   Mojave         
             Category              -----------------------------------------------------------------------------
                                        VOC          NOX          VOC          NOX          VOC          NOX    
----------------------------------------------------------------------------------------------------------------
Stationary........................         12.4          3.1         15.7          1.9         20.0         51.6
Mobile............................         36.9         41.1         19.2         26.2         26.5         62.0
                                   -----------------------------------------------------------------------------
      Total.......................         49.4         44.3         34.9         28.1         46.5        113.6
----------------------------------------------------------------------------------------------------------------

    c. SIP Control Measures.
(1) Description
    The SCAQMD's existing rules and committal measures apply not only 
throughout the South Coast Air Basin but also in the SCAQMD's portions 
of the Southeast Desert. The SIP includes the State measures and a 
subset of the SCAQMD measures discussed above in sections II.A. and 
II.C.7., but does not add to that list any unique State or local 
controls for the Coachella and Antelope regions. The MDAQMD included in 
the Mojave Plan the measures listed below as well as several mobile 
source measures taken from EPA's Federal Implementation Plan (FIP) for 
the South Coast. CARB eliminated the FIP measures from the State's 
submittal.

           Mojave SIP Control Measures and VOC/NOX Reductions           
                         [In Tons/day for 1996]                         
------------------------------------------------------------------------
                      MDAQMD measure                         VOC    NOX 
------------------------------------------------------------------------
Rule 1113 Architectural Coatings..........................   0.92  .....
Rule 1160 Internal Combustion Engines.....................   0.23   6.08
Rule 461 Gasoline Transfer Dispensing.....................   3.74  .....
------------------------------------------------------------------------

(2) EPA Action
    EPA proposes to approve the control measures portion of the Mojave 
plan under sections 110(k)(3) and 301(a) of the Act as strengthening 
the SIP.
    d. ROP and Attainment Provisions.
(1) ROP and Attainment Emission Targets
    CARB's summary of ROP targets in Volume IV of the 1994 California 
Ozone SIP identifies the following 15% ROP targets for the three 
subregions within the Southeast Desert: Coachella 38 tpd VOC, Antelope 
29 tpd VOC, Mojave 36 tpd VOC. CARB did not provide similar information 
with respect to post-1996 ROP or attainment.
(2) State Approach
    The SIP submittal for the three subregions includes detailed 
information relating to compliance with the 15% ROP plan requirements. 
With respect to the post-1996 ROP requirements, CARB and the SCAQMD 
requested a waiver from the requirements for the Coachella and Antelope 
subregions, based on the provisions of section 182(c)(2)(B)(ii) of the 
Act, which allows the Administrator to approve post-1996 ROP plans that 
achieve less than the 3% per year required reductions if the State 
demonstrates that the plan includes all measures that can be feasibly 
implemented in the area, including all measures achieved in practice by 
sources in the same source category in nonattainment areas of the next 
higher classification. CARB also asserted that

[[Page 10959]]
the post-1996 ROP requirements should be waived in all three subregions 
based simply on the overwhelming transport into the Southeast Desert 
(1994 California Ozone SIP, Volume IV, pp. IV-16 and IV-17).
    In submitting the ROP and attainment demonstration plans for the 
Southeast Desert, CARB asserted that ``the stringency of the NOX 
and VOC precursor control strategy necessary for the district to meet 
the 1994 ozone planning requirements for attainment and rate of 
progress demonstrations is primarily dependent upon the severity of the 
problem in the South Coast, as well as the mix and location of sources 
which contribute to ozone precursor concentrations and the timing and 
stringency of previously adopted controls in that area.'' (CARB 
Resolution No. 94-64, para. 4)
    The three local plans provide further documentation of the 
overwhelming transport from the South Coast Air Basin. In the case of 
the Coachella area, ozone and ozone precursors are transported by the 
prevailing sea breeze through San Gorgonio (or Banning) pass. The 
Antelope area is impacted by polluted air masses passing northward 
through the Newhall and Soledad pass. The Mojave portion of the 
nonattainment area is a vast, sparsely-populated high desert region, at 
a greater distance from, but still strongly affected by, SCAB emissions 
to the west and southwest.
    CARB and the local agencies believe that the Southeast Desert will 
attain the NAAQS by the 2007 deadline by virtue of the successful 
implementation of the South Coast plan. The Mojave plan includes 
further information to support MDAQMD's conclusion that opportunities 
for further VOC and NOX reductions within the area are greatly 
limited by the absence of significant sources of anthropogenic 
emissions in the area, and the current degree of control imposed upon 
those sources.
(3) Modeling and Attainment Demonstration
    Photochemical grid modeling was required for the attainment 
demonstration for the Southeast Desert Basin, because of the area's 
severe-2 classification. Because of the relatively important role of 
the western boundary conditions, it was determined that modeling the 
SEDAB basin along with the South Coast Air Basin was preferable to 
modeling the SEDAB basin alone.
    Therefore, the attainment demonstration was performed by the 
SCAQMD, using a domain that includes the South Coast Air Basin, much of 
the Southeast Desert Basin, and Ventura County. The SCAQMD did not 
enlarge the domain to include the entire Southeast Desert Basin. 
Ideally, the domain would cover the entire nonattainment area. However, 
the portions of the nonattainment area not covered by the domain were 
expected to be below the NAAQS, when the other portions of the area are 
able to demonstrate compliance with the standard.
    The air quality results for the year 2007 projected inventories 
were determined for the purpose of analyzing the ability of the 
Southeast Desert to attain by the severe-2 attainment date. Five 
episodes were modeled for the attainment demonstration. The episode 
selection process was determined by the availability of an enhanced 
data base of air quality and meteorological data, generated primarily 
by the 1987 South Coast Air Quality Study. Since the modeling was 
performed for the SCAB, the primary criteria for episode selection was 
the presence of high ozone in the SCAB, rather than high ozone in the 
Southeast Desert. The highest level of ozone recorded in the Mojave 
Desert for the five episodes was .15 ppm, compared to a design value of 
.24 ppm. Because of the high level of resources required to compile the 
necessary air quality, emissions inventory, and meteorological data for 
each episode, EPA accepts the decision not to model an additional 
episode with higher levels of ozone in the Southeast Desert.
    Using the emission reductions from proposed control measures, 
including South Coast Air Basin emission reductions, the modeling 
results show that peak predicted ozone concentrations for the year 2007 
are below the ozone NAAQS.
    In order to improve understanding of the formation of ozone in the 
SCAB and transport between the South Coast, Southeast Desert, Ventura, 
and San Diego air basins, a joint study is being planned by the local, 
State, and Federal agencies, as well as the National Weather Service 
and the Department of Defense. The purpose of the study is to provide 
an enhanced data base of air quality and meteorological measurements, 
both at the surface level and aloft, to allow modeling of more recent 
episodes and a larger domain than is currently possible.
(4) EPA Action
    EPA agrees with the State that attainment of the ozone NAAQS in the 
Southeast Desert is heavily dependent upon reductions in the South 
Coast. Modeling information, based on the South Coast UAM analysis, 
supports the State's contention that reductions from the South Coast 
SIP (along with SIP reductions within the area) will bring the 
Southeast Desert into attainment by the statutory deadline. EPA 
therefore proposes to approve the Southeast Desert modeling and 
attainment demonstration under section 182(c)(2) of the Act.
    e. Overall EPA Action. EPA proposes to approve fully the Southeast 
Desert ozone SIP with respect to the Act's requirements for emission 
inventories, control measures, and demonstration of attainment. EPA 
will take action on the 15% ROP and the post-1996 ROP plan elements for 
the three Southeast Desert subregions in separate rulemakings.

III. Summary of EPA Actions

    EPA proposes to approve the following elements of the 1994 
California Ozone SIP for the listed areas, as meeting applicable CAA 
requirements:
    (1) Emission Inventories for Santa Barbara, San Diego, San Joaquin, 
Sacramento, Ventura, South Coast, and Southeast Desert, under section 
182(a)(1) of the CAA.
    (2) 15% ROP Plans for Santa Barbara, San Diego, San Joaquin, 
Ventura, and South Coast, under section 182(b)(1).
    (3) Post-1996 ROP Plans for San Diego, San Joaquin, Sacramento, 
Ventura, and South Coast, under section 182(c)(2)(B) of the CAA.
    (4) Modeling and Attainment Demonstrations for Santa Barbara, San 
Diego, San Joaquin, Sacramento, Ventura, Southeast Desert, and South 
Coast, under section 182(c)(2) of the CAA.
    (5) All of the local control measures listed above in section 
II.C., for each of the nonattainment areas, including the specific 
emissions reductions for each milestone year, under sections 110(k)(3) 
and 301(a) of the CAA. In the case of delinquent control measures in 
the South Coast, EPA proposes approval only if a revised adoption 
schedule is submitted.
    (6) All of the State's control measures contained in the 1994 
California Ozone SIP that EPA has not previously approved: M1--
Accelerated Retirement of LDVs, M4--Early Introduction of 2g/bhp-hr 
Heavy-Duty Diesel Vehicles, M7--Accelerated Retirement of HDVs, CP3--
Aerosol Paints, and Pesticides). EPA also proposes to assign specific 
emissions reductions by nonattainment area and milestone year (as 
displayed in the tables in section II.A.) for all of the State control 
measures, including those previously approved under sections 110(k)(3), 
182(e)(5), and 301(a) of the

[[Page 10960]]
CAA. All of these actions are proposed under sections 110(k)(3) and 
301(a) of the CAA.
    EPA proposes to approve California's I/M regulations under sections 
110(k)(3) and 301(a). EPA also proposes to approve the State's basic I/
M program under section 182(b)(4) of the CAA and the enhanced I/M 
program, including the assignment of specific emissions reductions 
identified in section II.A.2. above, under section 182(c)(3) of the CAA 
and section 348(c) of the Highway Act.
    EPA will take separate regulatory action on the 15% ROP Plans for 
Sacramento and the Southeast Desert, and the post-1996 ROP Plan for the 
Southeast Desert.
    Nothing in this action should be construed as permitting or 
allowing or establishing a precedent for any future request for 
revision to any SIP. Each request for revision to the SIP shall be 
considered separately in light of specific technical, economic, and 
environmental factors and in relation to relevant statutory and 
regulatory requirements.

IV. 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 business, small not-for-profit enterprises and 
government entities with jurisdiction over populations of less than 
50,000.
    SIP approvals under sections 110 and 301 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 impose any new requirements, 
it does not have a significant impact on any small entities affected. 
Moreover, due to the nature of the Federal/state relationship under the 
Act, preparation of a regulatory flexibility analysis would constitute 
Federal inquiry into the economic reasonableness of state action. The 
Act 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).
    This action has been classified as a Table 3 action for signature 
by the Regional Administrator under the procedures published in the 
Federal Register on January 19, 1989 (54 FR 2214-2225), as revised by a 
July 10, 1995 memorandum from Mary Nichols, Assistant Administrator for 
Air and Radiation. The Office of Management and Budget has exempted 
this regulatory action from Executive Order 12866 review.

V. Unfunded Mandates

    Under sections 202, 203, and 205 of the Unfunded Mandates Reform 
Act of 1995 (``Unfunded Mandates Act'') signed into law on March 22, 
1995, EPA must undertake various actions in association with proposed 
or final rules that include a Federal mandate that may result in 
estimated costs of $100 million or more to the private sector, or to 
State, local, or tribal governments in the aggregate.
    Through submission of these SIP revisions, the State and any 
affected local or tribal governments have elected to adopt the program 
provided for under sections 110 and 182 of the CAA. These rules may 
bind State, local, and tribal governments to perform certain actions 
and also require the private sector to perform certain duties. To the 
extent that the rules being approved today will impose any mandate upon 
the State, local, or tribal governments either as the owner or operator 
of a source or as a regulator, or would impose any mandate upon the 
private sector, EPA's action will impose no new requirements; such 
sources are already subject to these requirements under State law. 
Accordingly, no additional costs to State, local, or tribal 
governments, or to the private sector, result from this action. EPA has 
also determined that this action does not include a mandate that may 
result in estimated costs of $100 million or more to State, local, or 
tribal governments in the aggregate or to the private sector.

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Carbon monoxide, 
Hydrocarbons, Incorporation by reference, Intergovernmental relations, 
Oxides of nitrogen, Ozone, Reporting and recordkeeping requirements, 
Volatile organic compounds.

    Authority: 42 U.S.C. 7401-7671q.

    Dated: March 4, 1996.
Felicia Marcus,
Regional Administrator.

Appendix: Status of EPA'S Activities Relating to the ``Federal 
Measures'' in the California SIP Submittal

    The information below represents the current status of EPA's 
activities, including ongoing rulemaking, with respect to each of the 
mobile source categories identified as ``Federal Measures'' in the 1994 
California Ozone SIP.

Heavy Duty Diesel Vehicles

    Measure M6 of the 1994 California Ozone State Implementation Plan 
(``the SIP'') provides for adoption by EPA of a Federal oxides of 
nitrogen (NOX) standard for new heavy-duty diesel on-highway 
vehicles. The NOX standard called for in the SIP is 2.0 grams per 
brake horsepower-hour (g/bhp-hr), to be implemented beginning in 2004. 
A Federal standard would help reduce emissions from the large number of 
out-of-state trucks which operate in California.
    EPA is fulfilling its commitment to propose tighter NOX 
emission standards for Federal on-highway heavy-duty vehicles as part 
of the NOX/PM (particulate matter) Initiative. On July 11, 1995, 
EPA, the California Air Resources Board (CARB), and the leading 
manufacturers of heavy-duty engines signed a Statement of Principles 
(SOP) that established a consensus plan to substantially reduce 
emissions from future trucks and buses on a nationwide basis. The goal 
of the SOP is to ensure cleaner air in a manner which is both realistic 
for the heavy-duty engine industry and responds to environmental needs 
as well. As a result of the SOP, EPA published an Advanced Notice of 
Proposed Rulemaking (ANPRM) on August 31, 1995. The ANPRM announced 
plans to propose a non-methane hydrocarbon (NMHC) plus NOX 
standard of 2.4 g/bhp-hr, or a combined NMHC plus NOX standard of 
2.5 g/bhp-hr with an NMHC cap of .5 g/bhp-hr. Engines meeting these 
future standards are expected to be over 80 percent cleaner than pre-
control engines. EPA is currently preparing a Notice of Proposed 
Rulemaking (NPRM) and expects to publish the NPRM late in the spring of 
1996. The Final Rule has a target publication date of winter 1996-1997. 
The new standards would be implemented beginning in 2004 and would 
apply to all on-highway heavy-duty engines.
    CARB played a very important role in the achievement of the 
Statement of Principles (SOP). In addition, CARB has given EPA 
tremendous support in the development of the ANPRM and the NPRM. As a 
result of the SOP and rulemaking processes, EPA and CARB will have 
harmonized programs for new heavy-duty engines, an advantage for engine 
manufacturers.

Off-Road Industrial Equipment (Diesel)

    Measure M10 of the SIP provides for adoption by EPA of a Federal 
NOX standard for, at a minimum, new farm

[[Page 10961]]
and construction equipment with diesel engines rated at less than 175 
hp (130 kw). These are the engines which California is preempted from 
regulating under the 1990 Clean Air Act Amendments. The NOX 
standard called for in the SIP is 2.5 g/bhp-hr (3.3 g/kw-hr), to be 
implemented beginning in 2005.
    In its 1991 Nonroad Study, EPA determined that nonroad diesel 
engines rated at 37 kw and more, including those covered in SIP measure 
M10, emit a substantial portion of the nation's NOX inventory. In 
response, EPA set a 9.2 g/kw-hr NOX standard for these engines in 
1994, to be phased-in beginning in 1996. The Agency also expressed its 
intent to undertake a second tier of standard setting to further 
control these emissions. The Clean Air Act provides for this as a 
discretionary effort and contains no requirements or guidance regarding 
the level or timing of the standards.
    Initial work on this second tier of standard setting is currently 
underway as part of the NOX/PM Initiative. The NOX/PM 
Initiative has been a joint program of both EPA and CARB. EPA and CARB 
recognize that harmonizing Federal and California standards would help 
to achieve air quality goals in all states by eliminating the potential 
for equipment with higher-emitting engines being transported across 
state borders. Harmonized standards would also have obvious advantages 
for manufacturers. The participation of CARB staff on this initiative 
has been invaluable.
    At this time, no decisions have been made regarding the level of 
the second tier of Federal standards. Although substantial NOX 
reductions are being pursued, there is no assurance that setting a 
standard as low as 3.3 g/kw-hr in the 2005 timeframe will be the most 
appropriate approach nationwide. A number of issues are likely to make 
it difficult to set standards at such a level. Among these issues is 
the strong desire by engine manufacturers for harmonization with 
European nonroad equipment standards which are considerably less 
stringent than the levels contained in the SIP. Another issue is the 
effect that significant engine technology changes due to standards 
could have on equipment designs. In order to fit redesigned engines 
into their equipment, manufacturers may need to modify many of their 
products to meet visibility, safety and performance specifications 
which may require additional leadtime. Regardless of these issues, EPA 
is committed to pursuing a second tier of standards for the heavy-duty 
diesel nonroad engines covered by this measure.

Gas and LPG Equipment 25-175 Horsepower

    Measure M12 of the SIP provides for adoption by EPA of a Federal 
program that will implement three-way catalyst technology on new 
nonroad equipment powered by gasoline or liquefied petroleum gas (LPG) 
engines rated at between 25 hp (18 kw) and 175 hp (130 kw). The goal of 
this measure is to reduce NOX emissions by at least 50 percent and 
hydrocarbon emissions by 75 percent. This is a complementary measure to 
measure M10 and much of the discussion of that measure applies here as 
well.
    EPA does not currently have any emission standards for gasoline or 
LPG engines in this category. However, under a consent decree signed by 
EPA with the Sierra Club on June 10, 1993, EPA agreed to determine by 
November 30, 1996 whether or not to regulate large gasoline nonroad 
engines and, if so, by what schedule. At this time, the Agency is 
considering setting standards for these engines as part of the 
NOX/PM Initiative. However, no decisions have been made regarding 
the possible level of any standards. Although substantial emission 
reductions may be pursued, there is no assurance that setting standards 
as low as those sought by CARB would be the most appropriate approach 
nationwide. The same issues that are likely to make it difficult to 
achieve stringent standards for diesel nonroad engines also apply to 
gasoline and LPG nonroad engines.

Marine Vessels

    Measure M13 of the SIP provides for adoption by U.S. EPA and by the 
International Maritime Organization (IMO) of emissions standards that 
would reduce NOX emissions from new diesel engines used in ocean-
going vessels by 30 percent. M12 also assumes that EPA will issue 
standards for non-ocean going vessels that will reduce NOX 
emissions by at least 65 percent.
    The IMO, a special agency of the United Nations, is developing 
guidelines for the reduction of NOX and sulfur oxides (SOx) from 
ships under a new Annex to the International Convention for the 
Prevention of Pollution from Ships (MARPOL 73/78). These guidelines 
would address the control of air pollution from ships. An IMO committee 
is scheduled to finalize a draft Annex in July 1996. After the 
committee's action, a diplomatic conference will be held in the spring 
of 1997 to review and approve the Annex. Each national will then 
consider the Annex and its associated guidelines for implementation and 
enforcement on vessels carrying its flag and on vessels entering its 
waters. Before the Annex could be enforced within US waters, the 
Congress would have to adopt it and its guidelines and then provide 
appropriate authority to a government agency.
    While it is true that the new Annex is intended to provide for a 30 
percent reduction in NOX emissions, that reduction applies only to 
ships beginning construction after a certain time (tentatively, January 
1998). It should be noted that there is a provision for application to 
existing ships that undergo a major modification or whose engines' 
power output is changed by 10 percent or more. Beyond that, the Annex 
does not address existing engines. Furthermore, achieving the target of 
30 percent, would require full implementation of the Annex worldwide.
    The NOX emission requirements in the new Annex would apply to 
all engines over 100 kW installed on ships over 400 gross tons or which 
have a total installed power of 1500 kW. The guidelines are composed of 
two parts: Part A addresses guidelines for the implementation of 
NOX limits for marine diesel engines; Part B addresses guidelines 
for diesel engine test, survey, and certification for compliance with 
the NOX emission limits.
    Numerous studies are underway to further investigate issues 
relating to marine vessels and the Santa Barbara channel. EPA is 
involved in these efforts, along with the United States Navy, the South 
Coast Air Quality Management District, and CARB.
    The United States Navy's ongoing studies are intended to better 
characterize ship traffic and its impact on ozone exceedances in 
Ventura County. These include investigating air trajectory and 
transport mechanisms, inventorying ship traffic, collecting ozone 
measurement data, and collecting weather parameters for modeling. This 
on-going study is not complete at this time. Another study, sponsored 
by SCAQMD, will improve the marine vessel emission inventory and 
briefly discuss potential control strategies. The SCAQMD study should 
be completed by June 1996. A third study, the Southern California 
Transport Study, being led by CARB, is intended to better understand 
air pollution transport in Southern California. The study will provide 
an enhanced air quality and meteorological database for Southern 
California, which will provide the basis for improved modeling. Data 
will be collected at the surface and aloft, as well as over water.
    Collectively, these studies will help the EPA and other interested 
parties further understand and discuss

[[Page 10962]]
potential strategies for reducing emissions from the shipping channel 
if needed for attainment.

Locomotives

    In Measure M14, CARB assumed locomotive emission reductions from 
two EPA programs. The first of these programs was the statutorily 
required EPA national regulation for locomotives and locomotive 
engines, (national locomotive regulation). EPA expects that the planned 
national locomotive regulation will provide all of the CARB SIP credits 
with the exception of the 67% reduction in NOX emissions in the 
South Coast by 2010.
    To address the South Coast's need for further emission reductions 
EPA has considered a special locomotive program for the South Coast. 
This program would require that all locomotives operating in the South 
Coast achieve on average, an emission level equal to EPA national 
locomotive regulation tier 2 standards. Since these standards are 
technology forcing, the practical requirement would be to require an 
accelerated fleet turnover in the South Coast such that only the newest 
engines meeting the EPA tier 2 standards would operate in the South 
Coast. This program would provide a 66% reduction in locomotive 
NOX emissions in the South Coast by 2010 and result in a NOX 
emission level of 12 tons/day in the South Coast. The railroads that 
operate in the South Coast voluntarily agreed to this program. EPA is 
continuing to explore innovative approaches to establish the South 
Coast clean locomotive fleet program as part of the SIP.

Aircraft

    Measure M15 calls for U.S. EPA to adopt standards to effect a 30 
percent reduction in reactive organic gases (ROG) and NOX 
emissions beginning in 2000. M15 apparently applies to new commercial 
aircraft engines, but also suggests reconsideration of the exempt 
status of military aircraft.
    The Federal Clean Air Act authorizes EPA to establish emission 
standards for aircraft engines. In recognition of this preemptive 
authority, the SIP assigns new nationwide emission standards for 
commercial aircraft engines to EPA that would reduce ROG and NOX 
emissions from this source by 30 percent beginning in 2000. The SIP 
also correctly acknowledges that military aircraft engines are 
currently exempt from emission standards, which otherwise apply to 
commercial aircraft engines. In this regard, the SIP recommends that 
the exempt status of these aircraft be reconsidered.
    The International Civil Aviation Organization (ICAO) is the most 
appropriate forum for establishing commercial aircraft engine emission 
standards due to the international nature of the aviation industry. EPA 
has actively participated in considering more stringent NOX 
standards as part of ICAO's Committee on Aviation Environmental 
Protection (CAEP) in the intervening period since the FIP. In December 
1995, CAEP recommended a 16 percent increase in stringency for the 
NOX standard that applies to medium and large turbine engines used 
on commercial aircraft. The revised standard would affect newly 
certified engines (i.e., engine models produced for the first time) 
beginning in 2000, and all newly manufactured engines (i.e., engines 
already being produced) in 2008. The revised standard would not affect 
engines already in air service. No revision of the hydrocarbon emission 
standard was considered by CAEP at the time, principally because modern 
turbine engines are considered very ``clean'' in this regard.
    The CAEP recommendation will now move through the ICAO hierarchy 
for consideration. Initially, the ICAO Council will act on the 
recommendation. If the Council finds it acceptable, the revision moves 
to the full ICAO Assembly for final action. This process may not be 
complete until the spring of 1998.
    The emission benefits of any new NOX standard will occur 
worldwide. These benefits, however, will gradually accrue over an 
extended period of time. More specifically, the full benefits of the 
revised standard will not occur until well after 2010, because of the 
2008 date for full implementation of the standard and the slow fleet 
turnover to new, cleaner engines (e.g., aircraft last about 25 years in 
active service.) Therefore, very few of the potential benefits will be 
realized by the SIP's attainment date. Turning to the exemption for 
military engines, EPA agrees with the SIP recommendation that such a 
blanket exemption should be reconsidered. The Agency is preparing a 
notice of proposed rulemaking to formally adopt the existing ICAO 
NOX and CO standards, and will request comment on the need for and 
feasibility of applying emission standards to military engines. This 
notice is currently scheduled for publication during fiscal year 1997, 
due to competing budgetary priorities.
    EPA has also continued to explore other ways to reduce the 
environmental effects of air travel in California and throughout the 
nation in the intervening period since the FIP. More specifically, the 
Agency and the Federal Aviation Administration (FAA) are working 
cooperatively to encourage continuing progress in reducing emissions 
from ground service equipment and aircraft auxiliary power units. EPA 
has sponsored additional work to compile technical data and emission 
inventory methods. This information will be used by the Federal 
Aviation Administration to develop an Advisory Circular for use by 
airlines and airport authorities interested in reducing the emissions 
from these sources.

Pleasurecraft

    Measure M16 assumes that U.S. EPA finalizes proposed national ROG 
and NOX standards for various categories of new engines used in 
watercraft.
    EPA has not yet finalized the rulemaking on emission standards for 
spark-ignition marine engines. The court ordered deadline for signature 
of the final rulemaking is May 31, 1996. EPA has issued guidance to 
states on the amount of credit that will be allowed due to this 
rulemaking. These emission standards will apply to new marine engines 
beginning in model year 1998. There is no second phase rulemaking 
planned.
    EPA has not yet finalized the rulemaking on emission standards for 
compression-ignition marine engines. The court ordered deadline for 
signature of the final rulemaking is May 31, 1996. EPA has not yet 
issued guidance to states on the amount of credit that will be allowed 
due to this rulemaking. These emission standards will apply to new 
marine engines beginning in model year 1999. The emission standards 
will achieve an approximate 30% reduction in new engine emissions. The 
inventory will be reduced as the fleet turns over.

[FR Doc. 96-6011 Filed 3-15-96; 8:45 am]
BILLING CODE 6560-50-P