[Federal Register Volume 61, Number 166 (Monday, August 26, 1996)]
[Rules and Regulations]
[Pages 43675-43677]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-21579]


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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 63

[FRL-5551-9]


Interim Approval of Section 112(l) Delegated Authority; 
Washington

AGENCY: Environmental Protection Agency (EPA)

ACTION: Final Interim Approval and Delegation.

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SUMMARY: EPA is promulgating final interim approval of the state of 
Washington Department of Ecology (Ecology) request for delegation of 
authority to implement and enforce state-adopted hazardous air 
pollutant regulations which adopt by reference the federal National 
Emission Standards for Hazardous Air Pollutants (NESHAP) contained 
within 40 CFR Parts 61 and 63, as these regulations apply to sources 
that are required to obtain a federal operating permit under 40 CFR 
Part 70 (i.e., Part 70 sources). EPA is also promulgating interim 
approval of certain local air agency potential-to-emit limiting 
regulations which will now be recognized as federally enforceable. At 
Ecology's request, EPA is delaying approval of certain other state and 
local potential-to-emit limiting regulations.
    These adopted regulations approved as part of this action will be 
implemented and enforced by both Ecology and/or the following local air 
authorities within the state of Washington: The Benton County Clean Air 
Authority (BCCAA); the Northwest Air Pollution Authority (NWAPA); the 
Olympic Air Pollution Control Authority (OAPCA); the Puget Sound Air 
Pollution Control Agency (PSAPCA); the Southwest Air Pollution Control 
Authority (SWAPCA); the Spokane County Air Pollution Control Authority 
(SCAPCA); and the Yakima County Clean Air Authority (YCCAA); 
collectively referred to as ``the Washington permitting authorities.''

EFFECTIVE DATE: August 26, 1996.

FOR FURTHER INFORMATION CONTACT: Chris Hall, US EPA, OAQ-107, 1200 
Sixth Avenue, Seattle, WA, 98101, (206) 553-1949.

SUPPLEMENTARY INFORMATION:

I. Background and Purpose

    Section 112(l) of the federal Clean Air Act (CAA) enables the EPA 
to approve state air toxic programs or rules to operate in place of the 
Federal air toxic program or rules. The Federal air toxic program 
implements the requirements found in section 112 of the CAA pertaining 
to the regulation of hazardous air pollutants. Approval of an air toxic 
program is granted by the EPA if the Agency finds that: (1) the State

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program is ``no less stringent'' than the corresponding federal program 
or rule, (2) the State has adequate authority and resources to 
implement the program, (3) the schedule for implementation and 
compliance is sufficiently expeditious, and (4) the program is 
otherwise in compliance with federal guidance. Once approval is 
granted, the air toxic program can be implemented and enforced by State 
or local agencies, as well as EPA.
    Implementation by local agencies is dependent upon appropriate 
subdelegation.
    On January 5, 1995 (as supplemented on May 8, 1995, October 18, 
1995, and January 9, 1996), the Washington permitting authorities 
submitted to EPA an application requesting delegation of authority to 
implement and enforce specific 40 CFR Part 61 and Part 63 NESHAP 
regulations adopted into Washington state and local law. On February 
16, 1996, EPA proposed interim approval of this request for delegation 
and requested public comment on this action. See 61 FR 6184. As of the 
close of the 30 day public comment period (March 17, 1996), EPA had 
received comments from two parties, both of which were supportive of 
the proposed delegation. On June 13, 1996, Ecology requested that EPA 
withhold action on its request for approval of: WAC 173-400-110, -112, 
-113, and -114; NWAPA Regulation sections 300 through 303; OAPCA 
Regulation 1, Article 7; SCAPCA Regulation I, Article II and V; and, 
YCCAA Restated Regulation I, Sections 4.02 and 12.01, until further 
notice.

II. Response to Comments

    Comments were received from both the Washington state Department of 
Ecology (C1) and the Southwest Air Pollution Control Authority (C2).
    EPA's responds to the substantive comments contained in C1 and C2 
as follows:

    1. In C1 and C2, Ecology and SWAPCA clarified that the 
Washington permitting authorities were not only requesting 
delegation for existing NESHAP regulations which have already been 
adopted into state and local law, but were also requesting approval 
of their mechanism for receiving delegation of future NESHAP 
regulations which the state and locals adopt into state and local 
law unchanged.
    2. In C1 and C2, Ecology and SWAPCA clarified that sources in 
Washington state are either subject to an operating permit fee or a 
source registration fee, but not both. EPA acknowledges this 
correction and no further response is necessary.
    3. In C2, SWAPCA gave notice that it had changed its regulatory 
numbering of one specific local regulation to coincide with the 
numbering in the state regulation. SWAPCA 400-090 ``Voluntary Limits 
on Emissions'' has been changed to SWAPCA 400-091 as of September 
21, 1995.
    4. In C1, Ecology expressed the concern that in the proposed 
rulemaking EPA raised invalid concerns regarding the adequacy of the 
Washington permitting authorities' resources for implementing and 
enforcing the delegated NESHAP regulations.

    In response to comment No. 1, EPA agrees that approval of the 
mechanism for future delegations proposed by the Washington permitting 
authorities will greatly streamline future delegation of those federal 
NESHAP regulations that are adopted into state and local law unchanged. 
Therefore, EPA grants interim approval of this adoption-by-reference 
mechanism for the Washington permitting authorities. In this respect, 
the Washington permitting authorities will only need to send a letter 
of request to EPA for those future NESHAP regulations which the state 
or local agencies have adopted by reference. EPA will respond to this 
request by sending a letter back to the state or local air agency 
delegating the NESHAP standards requested. No further formal response 
from the state or local agency will be necessary, and if no negative 
response is received within 10 days, the delegation becomes final. A 
notice of the delegation will be published in the Federal Register to 
inform the public that the delegation has taken place and to indicate 
where a source notification and other reports should be sent.
    In response to comment No. 3, EPA agrees to grant interim approval 
of SWAPCA Regulation 400-091, as it was in effect September 21, 1995, 
in place of SWAPCA Regulation 400-090.
    Finally, in response to comment No. 4, it was not EPA's intention 
to raise any doubts regarding the Washington permitting authorities' 
ability to provide for adequate resources for implementing, assuring 
compliance, and enforcing the adopted NESHAP regulations within the 
state of Washington. EPA believes that the Washington permitting 
authorities have adequately documented that they will be able to 
provide resources which are adequate to run their respective air toxics 
programs.

III. Programs for Interim Approval

    In this action, under the authority of section 112(l)(5) and 40 CFR 
63.91, EPA is promulgating interim approval of the Washington 
permitting authorities' request for delegated authority to implement 
and enforce 40 CFR Part 61, subparts A, C through F, J, L through P, V, 
Y, BB, and FF, as adopted into WAC 173-400 (as in effect February 16, 
1993), NWAPA Section 104.2 (as in effect December 8, 1993), PSAPCA 
Regulation III Section 2.02 (as in effect October 19, 1995), SWAPCA 
Regulation 400 Section 075 (as in effect February 1, 1995), and YCCAA 
Regulation I Section 12.02 (as in effect September 14, 1994), as these 
rules apply to Part 70 sources. EPA is also promulgating interim 
approval of the NWAPA, PSAPCA, and SWAPCA request for delegated 
authority to implement and enforce the following locally-adopted 40 CFR 
Part 63 NESHAP regulations as they apply to Part 70 sources: NWAPA 
regulation 104.2 which adopts by reference 40 CFR Part 63 subparts A 
through D, F through I, L, M, and Q, as amended on October 19, 1994; 
PSAPCA Regulation III, Section 2.02 as in effect on October 19, 1995, 
which adopts by reference 40 CFR Part 63 subparts A, B, D, F through I, 
L through O, Q, R, T, W, X, and EE, as in effect as of July 1, 1995; 
and, SWAPCA Regulation 400-075 as in effect on February 1, 1995, which 
adopts by reference 40 CFR Part 63 subparts A, B, D, F-I, L-O, R, Q, T, 
and EE.
    Additionally, EPA is promulgating interim approval under the 
authority of section 112(l)(5) and 40 CFR 63.91 of Washington's 
mechanism for receiving delegation of section 112 standards that are 
unchanged from federal standards as promulgated.
    EPA is also promulgating interim approval of PSAPCA Regulation I, 
Article 6, and Regulation III, Appendix A; and, SWAPCA Regulation 400-
091, -110, -112, -113, and -114 under the authority of Sec. 112(l) of 
the Act in order to recognize these regulations as federally 
enforceable for purposes of establishing potential-to-emit limitations. 
Upon Ecology's request, EPA is withholding action on WAC 173-400-110, -
112, -113, and -114; NWAPA Regulation, Sections 300 through 303; OAPCA 
Regulation 1, Article 7; SCAPCA Regulation I, Article II and V; and, 
YCCAA Restated Regulation I, Sections 4.02 and 12.01, until further 
notice.
    Since EPA has determined that Washington's criminal authorities 
under RCW 70.94.430 do not meet the stringency requirement of 40 CFR 
70.11, EPA is only promulgating interim approval of the Washington 
permitting authorities request for delegation. In this respect, EPA 
will retain implementation and enforcement authority for these rules as 
they apply to non-Part 70 sources during the interim period or until 
such time as the Washington permitting authorities demonstrate that 
their criminal authorities meet EPA

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stringency requirements. As outlined in the proposed rulemaking to this 
final action (61 FR 6184), the Washington permitting authorities were 
requested to demonstrate to EPA that Washington's criminal enforcement 
authorities are consistent with the requirements of 40 CFR 70.11(a), 
and therefore 40 CFR 63.91(b)(1) and (b)(6), if they wish to receive 
``full'' approval. Specifically, the Washington permitting authorities 
were requested to:

    (1) Revise RCW 70.94.430 to provide for maximum criminal 
penalties of not less than $10,000 per day per violation, as 
required by 40 CFR 70.11(a)(3)(ii),
    (2) Revise RCW 70.94.430 to allow the imposition of criminal 
penalties against any person who knowingly makes any false material 
statement, representation or certification in any form, in any 
notice or report required by a permit, as required by 40 CFR 
70.11(a)(3)(iii). This provision must include maximum penalties of 
not less than $10,000 per day per violation, and
    (3) Revise RCW 70.94.430 to allow the imposition of criminal 
penalties against any person who knowingly renders inaccurate any 
required monitoring device or method, as required by 40 CFR 
70.11(a)(3)(iii). This provision must include maximum penalties of 
not less than $10,000 per day per violation, or
    (4) Demonstrate to the satisfaction of EPA that these 
authorities are consistent with 40 CFR 70.11, and therefore 40 CFR 
61.91.

    To date, Ecology has only submitted supporting documentation to 
demonstrate that existing state laws are adequate to meet the 
requirements of (1) above. It is EPA's understanding that final action 
at the state level resolving issues (2) and (3) above will be completed 
by August 15, and will become effective on September 15. Since EPA has 
not had the opportunity to fully review the supporting documentation 
received to date in regard to (1) above, a final determination as to 
whether the requirements of 40 CFR 70.11 and 61.91 have been met will 
not be made at this time. EPA anticipates being able to take final 
action on these interim delegation issues in the near future, but not 
before Ecology's proposed regulatory changes in regard to (2) and (3) 
above become effective on September 15. Unless EPA takes prior action, 
this delegation of authority to implement and enforce the federal 
NESHAP regulations will extend only until December 9, 1996, the day on 
which interim authority for Washington's Title V federal operating 
permit program expires. EPA will not extend this interim delegation 
past December 9, 1996, unless deemed appropriate under Part 70 
rulemaking.

IV. Summary of Action

    Pursuant to the authority of Sec. 112(l) of the Act and 40 CFR Part 
63 subpart E, EPA is promulgating interim approval of the Washington 
permitting authorities' request for delegation of authority to 
implement and enforce specific 40 CFR Part 61 and Part 63 federal 
NESHAP regulations which have been adopted into Washington state and 
local law for part 70 sources. Additionally, EPA is promulgating 
interim approval of the mechanism by which the Washington permitting 
authorities will receive delegation of future NESHAP regulations. 
Finally, EPA is promulgating interim approval of specific SWAPCA and 
PSAPCA air regulations for the purpose of conferring federal 
enforceability to synthetic minor permits or orders issued pursuant to 
these regulations.

V. Administrative Requirements

A. Executive Order 12866

    The Office of Management and Budget has exempted this regulatory 
action from Executive Order 12866 review.

B. Regulatory Flexibility Act

    Under the Regulatory Flexibility Act, 5 U.S.C. Sec. 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. Secs. 603 and 
604. Alternatively, EPA may certify that the rule will not have a 
significant impact on a substantial number of small entities. Small 
entities include small businesses, small not-for-profit enterprises, 
and government entities with jurisdiction over populations of less than 
50,000.
    NESHAP rule or program delegations approved under the authority of 
section 112(l) of the Act do not create any new requirements, but 
simply confer federal authority for those requirements that the state 
of Washington is already imposing. Therefore, because section 112 
delegation approvals do not impose any new requirements, the Agency has 
determined that it would 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 the State action. The Act forbids EPA to base its 
actions concerning State programs 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).

C. Unfunded Mandates Reform Act

    EPA has determined that the proposed approval action promulgated 
today does not include a federal mandate that may result in estimated 
costs of $100 million or more to either State, local, or tribal 
governments in the aggregate, or to the private sector. This federal 
action approves pre-existing requirements under State or local law, and 
imposes no new federal requirements. Accordingly, no additional costs 
to State, local, or tribal governments, or to the private sector, 
result from this action.

D. Submission to Congress and the General Accounting Office

    Under 5 U.S.C. 801(a)(1)(A) as added by the Small Business 
Regulatory Enforcement Fairness Act of 1996, EPA submitted a report 
containing this rule and other required information to the U.S. Senate, 
the U.S. House of Representatives and the Comptroller General of the 
General Accounting Office prior to publication of this rule in the 
Federal Register. This rule is not a ``major rule'' as defined by 5 
U.S.C. 804(2).

List of Subjects in 40 CFR Part 63

    Environmental protection, Administrative practice and procedure, 
Air pollution control, Hazardous substances, Intergovernmental 
relations.

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

    Dated: July 24, 1996.
Chuck Clarke,
Regional Administrator.
[FR Doc. 96-21579 Filed 8-23-96; 8:45 am]
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