[Federal Register Volume 61, Number 230 (Wednesday, November 27, 1996)]
[Proposed Rules]
[Pages 60242-60253]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-29660]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[Docket 154, NY22-1; FRL-5652-5]


Approval and Promulgation of Air Quality Implementation Plans; 
New York: Enhanced Motor Vehicle Inspection and Maintenance Program

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed conditional interim rule.

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SUMMARY: EPA is proposing a conditional interim approval of a State 
Implementation Plan (SIP) revision submitted by the State of New York. 
This revision establishes and requires the implementation of an 
enhanced inspection and maintenance (I/M) program in the counties of 
the Bronx, Kings, Nassau, New York, Queens, Richmond, Rockland, Suffolk 
(except Fisher's Island), and Westchester Counties. The intended effect 
of this action is to propose conditional interim approval of the I/M 
program proposed by the State, based upon the State's good faith 
estimate, which asserts that the State's network design emission 
reduction credits are appropriate and the revision is otherwise in 
compliance with the Clean Air Act (CAA). This action is being taken 
under section 348 of the National Highway System Designation Act of 
1995 (NHSDA) and section 110 of the CAA. EPA is proposing a conditional 
interim approval because the State's SIP revision is deficient with 
respect to the following requirements: test procedures; standards and 
equipment; waiver expenditure requirements; and performance standard 
modeling.
    If the State commits within 30 days of the publication of this 
proposed conditional interim approval to correct the major deficiencies 
by dates certain as described below, then this proposed conditional 
interim approval shall expire pursuant to the NHSDA and section 110 of 
the CAA on the earlier of 18 months from final interim approval, or on 
the date EPA takes final action on the state's full I/M SIP. In the 
event that the State fails to submit a commitment to correct all of the 
major deficiencies within 30 days after the publication of this 
proposed conditional interim approval, then EPA is proposing in the 
alternative to disapprove the SIP revision. If the state does not make 
a timely commitment but the conditions are not met by the specified 
date within one year, EPA proposed that this proposed conditional 
interim approval will convert to a final disapproval. If the 
conditional interm approval is converted to a disapproval, EPA will 
notify the State by letter that the conditions have not been met and 
that the conditional interim approval has been converted to a 
disapproval.

DATES: Comments must be received on or before December 27, 1996.

ADDRESSES: Written comments on this proposed action may be addressed 
to: Regional Administrator, Attention: Air Programs Branch, Division of 
Environmental Planning and Protection, Environmental Protection Agency, 
Region 2, 290 Broadway, 25th Floor, New York, New York 10007-1866. 
Copies of the documents relevant to this action are available for 
public inspection during normal business hours at the address shown 
above.
    Electronic Availability: This document and EPA's technical support 
document are available at Region 2's site on the Internet's World Wide 
Web at: http://www.epa.gov/region02/ air/sip/.

FOR FURTHER INFORMATION CONTACT: Rudolph K. Kapichak, Mobile Source 
Team Leader, Air Programs Branch, Environmental Protection Agency, 
Region 2, 290 Broadway, 25th Floor, New York, New York 10007-1866, 
(212) 637-4249.

Supplementary Information:

I. Background

A. Impact of the National Highway System Designation Act on the Design 
and Implementation of Enhanced Inspection and Maintenance Programs 
Under the Clean Air Act

    The National Highway System Designation Act of 1995 (NHSDA) 
establishes two key changes to the enhanced I/M Rule requirements 
previously developed by EPA. Under the NHSDA, EPA cannot require states 
to adopt or implement centralized, test-only IM240 enhanced vehicle 
inspection and maintenance programs as a means of compliance with 
section 182, 184 or 187 of the CAA. Also under the NHSDA, EPA cannot 
disapprove a state SIP revision, nor apply an automatic discount to a 
state SIP revision under section 182, 184 or 187 of the CAA, because 
the I/M program in such plan revision is decentralized, or a test-and-
repair program. Accordingly, the so-called ``50 percent credit 
discount'' that was established by the EPA's I/M Program Requirements 
Final Rule, (published November 5, 1992, and herein referred to as the 
I/M Rule or the federal I/M regulation) has been effectively replaced 
with a presumptive equivalency criterion, which places the emission 
reductions credits for decentralized networks on par with credit 
assumptions for centralized networks, based upon a state's good faith 
estimate of reductions as provided by the NHSDA and explained below in 
this section.
    EPA's I/M Rule established many other criteria unrelated to network 
design or test type for states to use in designing enhanced I/M 
programs. All other elements of the I/M Rule, and the statutory 
requirements established in the CAA continue to be required of those 
states submitting I/M SIP revisions under the NHSDA. Therefore, the 
NHSDA specifically requires that these submittals must otherwise comply 
in all respects with the I/M Rule and the CAA.
    The NHSDA also requires states to swiftly develop, submit, and 
begin implementation of these enhanced I/M programs, since the 
anticipated start-up dates developed under the CAA and EPA's I/M Rule 
have already been delayed. In requiring states to submit their I/M 
plans within 120 days of the NHSDA passage, and in allowing these 
states to submit proposed regulations within this time frame for their 
I/M programs (which can be finalized and submitted to EPA during the 
interim period) it is clear that Congress intended

[[Page 60243]]

for states to begin testing vehicles as soon as practicable now that 
the decentralized credit issue has been clarified and directly 
addressed by the NHSDA.
    Submission criteria described under the NHSDA allow for a state to 
submit proposed regulations for this interim program, provided that the 
state has all of the statutory authority necessary to carry out the 
program. Also, in proposing the interim emission reduction credits for 
this program, the state is required to make a good faith estimate 
regarding the performance of its enhanced I/M program. Since this 
estimate is expected to be difficult to quantify, the state need only 
provide that the proposed emission reduction credits claimed for the 
submission have a basis in fact. A good faith estimate may be based on 
any of the following: the performance of any previous I/M program, the 
results of remote sensing or other roadside testing techniques, fleet 
and vehicle miles traveled (VMT) profiles, demographic studies, or 
other evidence which has relevance to the effectiveness or emissions 
reducing capabilities of an I/M program.
    This action is being taken under the authority of both the NHSDA 
and section 110 of the CAA. Section 348 of the NHSDA expressly directs 
EPA to issue this interim approval for a period of 18 months, at which 
time the interim program will be evaluated in concert with the 
appropriate state agencies and EPA. The Conference Report on section 
348 of the NHSDA states that it is expected that the estimated emission 
reduction credits claimed by the state in its I/M SIP, and the actual 
emissions reductions demonstrated through the program data may not 
match exactly. Therefore, the Conference Report suggests that EPA use 
the program data to appropriately adjust the proposed emission 
reduction credits to reflect the emissions reductions actually measured 
by the state during the program evaluation period.
    Furthermore, EPA believes that in taking action under section 110 
of the CAA, it is appropriate to grant a conditional approval to this 
submittal, since there are some deficiencies with the submittal in 
respect to CAA statutory and regulatory requirements (identified 
herein). EPA believes that these deficiencies can be corrected by the 
state during the interim period.

B. Interim Approvals Under the NHSDA

    The NHSDA directs EPA to grant interim approval for a period of 18 
months to approvable I/M submittals under this Act. The NHSDA also 
directs EPA and the states to review the interim program results at the 
end of 18 months, and to make a determination as to the effectiveness 
of the interim program. Following this demonstration, EPA will adjust 
any credit claims made by the state in its good faith effort to reflect 
the emissions reductions actually measured by the state during the 
program evaluation period. The NHSDA is clear that the interim approval 
shall last for only 18 months, and that the program evaluation is due 
to EPA at the end of that period. Therefore, EPA believes Congress 
intended for these programs to start-up as soon as possible, which EPA 
believes should be at the latest, by November 15, 1997. This would 
allow the state about six months to generate data to support its 
emission reduction claim. EPA further believes that in setting such a 
strict timetable for program evaluations under the NHSDA, Congress 
recognized and attempted to mitigate any further delay with the start-
up of this program. For the purposes of this program, ``start-up'' is 
defined as a fully operational program which has begun regular, 
mandatory inspections and repairs, using the final test strategy and 
covering each of a state's required areas. EPA proposes that if the 
state fails to start its program on this schedule, the approval granted 
under the provisions of the NHSDA will convert to a disapproval after a 
finding letter is sent to the state.
    The program evaluation to be used by the state during the 18-month 
interim period must be acceptable to EPA. EPA anticipates that such a 
program evaluation process will be developed by the Environmental 
Council of States (ECOS) group that has convened and that was organized 
for this purpose. EPA further anticipates that in addition to the 
interim, short term evaluation, the state will conduct a long term, 
ongoing evaluation of the I/M program as required by the I/M Rule in 40 
CFR 51.353 and 51.366.

C. Process for Final Approval of This Program Under the CAA

    As per the NHSDA requirements, this interim rulemaking will expire 
within 18 months of the conditional interim approval, or sooner if EPA 
takes action to approve the final SIP submittal prior to that date. A 
final approval of the state's final I/M SIP revision (which will 
include the state's program evaluation and final adopted state 
regulations) is still necessary under section 110 and under section 
182, 184 or 187 of the CAA. After EPA reviews the state's submitted 
program evaluation, final rulemaking on the state's final SIP revision 
will occur.

II. EPA's Analysis of New York State's Submittal

    On March 27, 1996, the New York State Department of Environmental 
Conservation (DEC) submitted a revision to its State Implementation 
Plan (SIP) for an enhanced I/M program to qualify under the NHSDA. The 
revision consists of enabling legislation that will allow the State to 
implement the I/M program, proposed regulations, a description of the 
I/M program (including a modeling analysis and detailed description of 
program features), and a good faith estimate that includes the State's 
basis in fact for emission reduction claims of the program. The State's 
credit assumptions were based upon the removal of the 50 percent credit 
discount for all portions of the program that are based on a test-and-
repair network, and the application of the State's own estimate of the 
effectiveness of its decentralized test-and-repair program.

A. Analysis of the NHSDA Submittal Criteria

Transmittal Letter
    On March 27, 1996, New York submitted an enhanced I/M SIP revision 
to EPA, requesting action under the NHSDA and the CAA. The official 
submittal was made by David Sterman, Deputy Commissioner, the 
appropriate State official, and was addressed to Regional Administrator 
Jeanne M. Fox, the appropriate EPA official in the Region.
Enabling Legislation
    The State of New York has legislation under Articles 3 and 19 of 
the State's Environmental Conservation Law and titles II and III of the 
State's Vehicle and Traffic Law, enabling the implementation of an 
enhanced I/M program.
Proposed Regulations
    On March 6, 1996, the State of New York, proposed regulations in 
accordance with 40 CFR Part 51, establishing an enhanced I/M program. 
DEC proposed to amend existing regulation 6NYCRR Part 217, ``Motor 
Vehicle Emissions,'' and the Department of Motor Vehicles (DMV) 
proposed to amend existing regulation 15NYCRR Part 79, ``Motor Vehicle 
Inspection Regulations.'' The primary program changes are as follows:
     A transient test (using a dynamometer) will replace the 
idle test,
     Waivers will now be granted only after motorists meet the 
repair expenditure requirement, and

[[Page 60244]]

     A gas cap test will be added to curtail evaporative 
emissions.
    The State anticipates fully adopting regulations by mid-November 
1996.
Program Description
    New York has proposed an annual enhanced decentralized test-and-
repair I/M program utilizing ``IG240'', which is a transient 
dynamometer-based emissions test. Existing test-and-repair stations 
will be utilized for the program. New York anticipates that 
approximately 50 percent of the existing stations will upgrade their 
equipment. Vehicles 25 years old and newer will be subject to the new 
program. The State proposes to implement the enhanced program in 
January 1998. Pass/fail cutpoints will be phased-in through to the year 
2000.
Emission Reduction Claim and Basis for the Claim
    The ``Utah Protocol'' was used to support the State's estimate of 
the anticipated emission reductions. It is also assumed that utilizing 
``IG240'' emissions testing will yield emission reductions midway 
between what would be gained from IM240 and a two-mode Acceleration 
Simulation Mode (ASM) test. The State claims 81 percent effectiveness 
for its test-and-repair program. The State proposes to use gas cap 
testing in place of pressure/purge testing and claims 100 percent 
effectiveness. The State claims only 50 percent effectiveness for its 
technician training program because the repair technicians will not be 
required to be licensed.

B. Analysis of the EPA I/M Regulation and CAA Requirements

     AAs previously stated, the NHSDA left those elements of 
the I/M Rule that do not pertain to network design or test type intact. 
Based upon EPA's review of New York's submittal, EPA believes the State 
has not complied with all aspects of the NHSDA, the CAA and the I/M 
Rule. Therefore, EPA proposes to conditionally approve the I/M SIP 
revision. Before EPA can continue with the interim rulemaking process, 
the State must make a commitment within 30 days of November 27, 1996 to 
correct the major deficiencies by dates certain as described in this 
document. New York's major deficiencies are described below.
Waiver Expenditure Requirements
    Many of the I/M programs currently operating include waivers for 
vehicles that cannot pass the applicable pass/fail standards, usually 
with a minimum expenditure requirement. Section 182(c)(2)(C)(iii) of 
the CAA included such a requirement, calling for owners of vehicles 
that fail an initial emissions inspection to spend at least $450 (1989 
cost), allowing for yearly Consumer Price Index (CPI) adjustments as 
specified in section 502(b)(3)(B)(v)(II) of the CAA. Although New 
York's proposed enhanced I/M program does include the $450 initial 
amount, it is not clear from the submitted I/M SIP revision whether the 
CPI adjustments account for increases since 1989, as required.
Enhanced I/M Performance Standard Modeling
    Section 51.350 of the federal I/M regulation requires that states 
submit, along with their proposed programs, modeling assumptions and 
results using EPA's most recent version of the mobile emissions model; 
currently MOBILE5a. New York's submittal includes such modeling. 
However, it includes assumptions for a test method that has yet to be 
developed, and for which no emission reduction credits have been 
established.
Test Procedures, Standards and Equipment
    Sections 51.357 and 51.358 of the federal I/M regulation require 
states to provide a clear step-by-step description of the test 
equipment, test process, and the pass/fail standards to be used. Since 
New York's test has not been fully developed, the State has yet to 
finalize its test procedure, standards and test equipment 
specifications. This must be done well in advance of program start.
    In order for EPA to proceed with conditional interim approval the 
State must commit within 30 days of the publication date of this 
proposal to correct these major deficiencies by dates certain or this 
approval will convert to a disapproval under CAA section 110(k)(4). EPA 
proposes that the deficiencies with regard to the enhanced performance 
standard modeling and the waiver expenditure requirements must be 
corrected within 12 months of EPA's conditional interim approval. 
Because the finalization of the test procedures, standards and 
equipment specifications is critical to ensuring that the program 
begins testing by the required date EPA proposes that this deficiency 
must be corrected no later than January 31, 1997. It is essential that 
the State submit final test procedures, standards and equipment 
specifications no later than this date because a significant lead time 
is necessary in order for the program to begin testing as planned.
    EPA has also identified certain minor (de minimis) deficiencies in 
the I/M SIP revision, which include:
    (1) Repair station report card,
    (2) Quality control,
    (3) Quality assurance,
    (4) Data Collection,
    (5) Inspector training, and
    (6) On-road testing.
    EPA has determined that allowing the State a longer time to correct 
these minor deficiencies will have a de minimis impact on the State's 
ability to meet clean air goals. Therefore, the State need not commit 
to correct these deficiencies in the short term, and EPA will not 
impose conditions on interim approval with respect to these 
deficiencies. However, the State must correct these deficiencies during 
the 18-month term of the interim approval, as part of the fully adopted 
rules that the State will submit to support final approval of its I/M 
SIP. So long as the State corrects these minor deficiencies prior to 
final action on the State's I/M SIP, EPA concludes that failure to 
correct the deficiencies in the short term is de minimis and will not 
adversely affect EPA's ability to give interim approval to the proposed 
I/M program.
    Considering the implementation schedule provided by New York in its 
March 27, 1996 submittal, EPA sought assurances that the State would 
make every effort to meet the program start-up date. As a result, on 
October 24, 1996, DEC Deputy Commissioner David Sterman wrote to Region 
2 indicating that the date would be met. This letter will be made part 
of the official docket.
Applicability--40 CFR 51.350
    Section 182(c)(3) of the CAA and the federal I/M regulation require 
all states with areas classified as being serious or worse ozone 
nonattainment areas to implement an enhanced I/M program. The New York-
New Jersey-Long Island nonattainment area is classified as a severe 
ozone nonattainment area and is required to implement an enhanced I/M 
program as per section 182(c)(3) of the CAA and 40 CFR 51.350(2). In 
addition, Bronx, Kings, Nassau, New York, Queens, Richmond, and 
Westchester Counties are designated as a moderate nonattainment area 
for carbon monoxide (CO) with a design value carbon monoxide 
concentration greater than 12.7 ppm. As per 40 CFR 51.350(3), any area 
classified as moderate CO nonattainment with a design value 
concentration greater than 12.7 ppm shall also implement an enhanced I/
M program.
    New York's proposed I/M regulation requires that the enhanced I/M 
program be implemented in Bronx, Kings,

[[Page 60245]]

Nassau, New York, Queens, Richmond, Rockland, Suffolk (except Fisher's 
Island) and Westchester Counties.
    New York State plans to require that all other counties be covered 
by an inspection program in accordance with the Ozone Transport Region 
(OTR) low enhanced I/M Rule, which was published in the Federal 
Register on July 25, 1996. Since this rule was only recently published, 
the State could not be expected to submit an I/M SIP revision for these 
counties pursuant to that rule by this time. As a result, New York will 
submit a final I/M SIP revision for these counties at a later date, and 
EPA will evaluate the adequacy of that program and take action at that 
time.
    The New York I/M legislative authority provides the legal authority 
to establish the geographic boundaries. The program boundaries are 
listed in Section 2.0 of the I/M SIP revision. EPA is proposing at this 
time to find that the geographic applicability requirements are 
satisfied for the counties subject to the original I/M Rule.
    The federal I/M regulation requires that the State program shall 
not sunset until it is no longer necessary. EPA interprets the federal 
regulation as stating that a SIP which does not sunset prior to the 
attainment deadline for each applicable area satisfies this 
requirement. The New York I/M regulation provides for the program to 
continue past the attainment dates for all applicable nonattainment 
areas in the State. New York's submittal meets the applicability 
requirements of the federal I/M regulation for interim approval.
Enhanced I/M Performance Standard--40 CFR 51.351
    The federal I/M regulation requires that enhanced I/M programs must 
be designed and implemented to meet or exceed a minimum performance 
standard, which is expressed as emission levels in area-wide average 
grams per mile (gpm) for certain pollutants. The performance standard 
shall be established using local characteristics, such as vehicle mix 
and local fuel controls, and the following model I/M program 
parameters: Network type, start date, test frequency, model year 
coverage, vehicle type coverage, exhaust emission test type, emission 
standards, emission control device, evaporative system function checks, 
stringency, waiver rate, compliance rate and evaluation date. The 
emission levels achieved by the state's program design shall be 
calculated using the most current version, at the time of submittal, of 
the EPA mobile source emission factor model. At the time of the New 
York submittal the most current version was MOBILE5a. Areas shall meet 
the performance standard for the pollutants which cause them to be 
subject to enhanced I/M requirements. In the case of ozone 
nonattainment areas, the performance standard must be met for both 
nitrogen oxides (NOx) and hydrocarbons (HC) as evaluated for the 
year 2002. In the case of carbon monoxide nonattainment areas, the 
performance standard must also be met for CO as evaluated for the year 
2002. The New York submittal must meet the enhanced I/M performance 
standard for HC, NOx and CO in all applicable I/M areas in New 
York.
    The New York submittal includes the following program design 
parameters:

------------------------------------------------------------------------
      Mobile5a parameter                   New York's program           
------------------------------------------------------------------------
Network type.................  Combination test-only, and test-and-     
                                repair.                                 
Start date...................  1998.                                    
Test frequency...............  Annual.                                  
Model years..................  25 years old and newer.                  
Vehicle type coverage........  LDGV, LDGT1, LDGT2, and HDGV.            
Exhaust emission test type...  NY-Test (short transient) on 1981 and    
                                newer vehicles less than or equal to    
                                8500 lbs gross vehicle weight rating    
                                (GVWR) and single speed idle test on    
                                1980 and older vehicles and vehicles    
                                greater than 8500 lbs GVWR.             
Emission standards...........  0.8/15/2.0 grams per mile (NY-Test) 1.2  
                                percent CO, 220 ppm HC (Idle Test).     
Emission control devices.....  Air pump, fuel inlet restrictor, EGR,    
                                PCV, TAC, catalyst.                     
Evaporative system function    Missing gas cap and evaporative          
 checks.                        disablement.                            
Waiver rate..................  3 percent.                               
Compliance rate..............  98 percent.                              
Stringency (pre-1981 failure   20 percent.                              
 rate).                                                                 
Evaluation dates.............  HC and NOX, July 2000; CO, July 2001.    
------------------------------------------------------------------------

    New York attempted to estimate the credit discount for this program 
by modeling the State's program as both test-only and test-and-repair 
and interpolating the results linearly to match the 81 percent claimed 
effectiveness. EPA finds this method to be acceptable. However, the 
analysis assumes that final pass/fail cutpoints will be used. In 
reality, the State intends to use looser phase-in cutpoints at least 
until the year 2000.
    New York intends to phase in the pass/fail standards so that those 
used during the initial cycles will not be as stringent as those the 
program will eventually use. Preliminary modeling performed by EPA 
indicates that the use of the looser standards will still allow the 
State to meet its emission reduction obligations required by the 15 
percent plan. However, EPA's modeling using corrected input parameters 
shows that New York's program fails to meet the emission reduction 
expectations of the ``high enhanced I/M performance standard'' for 
hydrocarbons. It does, however, meet the ``low enhanced I/M performance 
standard.'' Therefore, the State will be able to show that the program 
at least meets the ``low enhanced I/M performance standard.'' If the 
State's final program analysis indicates that use of these standards 
will not generate the emission reductions needed to allow the State to 
meet the goals of its 15 percent plan, New York may be required to use 
tighter standards, or implement other control strategies.
    EPA is proposing conditional interim approval of the State program 
at this time consistent with the intent of the NHSDA that state I/M 
programs be promptly approved and implemented for an 18-month period. 
EPA proposes that this approval be conditioned upon the requirement 
that the State conduct and submit the necessary modeling and 
demonstration that the program will meet the performance standard. EPA 
proposes that the modeling and demonstration be submitted by a date 
certain within 12 months from conditional interim approval. If the 
State fails to submit this new modeling within 12 months, EPA proposes 
that

[[Page 60246]]

the conditional interim approval will convert to a disapproval upon a 
letter from EPA indicating that the State has failed to submit the 
modeling and demonstration of compliance with the performance standard 
by the required date.
    If the State cannot meet the enhanced I/M performance standard, the 
State may demonstrate compliance with the low enhanced performance 
standard established in 40 CFR 51.351(g). That section provides that 
states may select the low enhanced performance standard if they have an 
approved SIP for reasonable further progress in 1996, commonly known as 
a 15 percent reduction SIP or 15 percent plan. In fact EPA approval of 
15 percent plans has been delayed, and although EPA is preparing to 
take action on 15 percent plans in the near future, it is unlikely that 
EPA will have completed final action on most 15 percent plans prior to 
the time EPA believes it would be appropriate to give final or 
conditional interim approval to I/M programs under the NHSDA. New York 
is currently reassessing its 15 percent plan to include the I/M program 
changes. This re-assessment is to be based on the current program 
design and its emission reduction benefit as of November 1999. If the 
results indicate that the State will not achieve a 15 percent reduction 
in emissions, New York may choose to either make I/M program 
improvements that would allow the program to meet the enhanced I/M 
performance standard or add other provisions to its overall control 
plan.
    In enacting the NHSDA, Congress evidenced an intent to have states 
promptly implement I/M programs under interim approval status to gather 
the data necessary to support state claims of appropriate credit for 
alternative network design systems. By providing that such programs 
must be submitted within a four month period, that EPA could approve I/
M programs on an interim basis based only upon proposed regulations, 
and that such approvals would last only for an 18 month period, it is 
clear that Congress anticipated both that these programs would start 
quickly and that EPA would act quickly to give them interim approval.
    Many states have designed a program to meet the low enhanced 
performance standard, and have included that program in their 15 
percent plan submitted to EPA for approval. Such states anticipated 
that EPA would propose approval both of the I/M programs and the 15 
percent plans on a similar schedule, and thus that the I/M programs 
would qualify for approval under the low performance standard. EPA does 
not believe it would be consistent with the intent of the NHSDA to 
delay action on interim I/M approvals until the Agency has completed 
action on the corresponding 15 percent plans. Although EPA acknowledges 
that under its regulations final approval of a low enhanced I/M program 
after the 18-month evaluation period would have to await approval of 
the corresponding 15 percent plan, EPA believes that in light of the 
NHSDA it can grant either final or conditional interim approval of such 
I/M plans provided that the Agency has determined as an initial matter 
that approval of the 15 percent plan is appropriate, and has issued a 
proposed approval of that 15 percent plan.
    The State plans to submit a revised 15 percent plan. It is possible 
that New York's proposed I/M program may fall short of the enhanced I/M 
performance standard but exceed the low enhanced performance standard. 
If this is the case and the emission reductions provided by the I/M 
program allow the State to fulfill the requirements of its 15 percent 
plan, then EPA will review the 15 percent plan and propose action on it 
shortly thereafter. Should EPA propose approval of the 15 percent plan, 
EPA will proceed to take conditional interim approval action on the I/M 
plan. EPA proposes in the alternative that if the Agency proposes 
instead to disapprove the 15 percent plan, EPA would then disapprove 
the I/M plan as well because the State would no longer be eligible to 
select the low enhanced performance standard under the terms of 40 CFR 
51.351(g).
Network Type and Program Evaluation--40 CFR 51.353
    The federal I/M regulation requires that enhanced programs shall 
include an ongoing evaluation to quantify the emission reduction 
benefits of the program, and to determine if the program is meeting the 
requirements of the CAA and the federal I/M regulation. The SIP shall 
include details on the program evaluation and a schedule for submittal 
of biennial evaluation reports, data from a state monitored or 
administered mass emission test of at least 0.1 percent of the vehicles 
subject to inspection each year, a description of the sampling 
methodology, the data collection and analysis system, and the legal 
authority enabling the evaluation program.
    In order to determine whether the State I/M program meets the 
enhanced I/M performance standard, and is therefore approvable, it must 
submit modeling demonstrating that the programs achieve the required 
emission reductions by the relevant dates. Because of delayed program 
start up and program reconfiguration, the existing modeling used by the 
State to demonstrate compliance with the performance standard is no 
longer accurate, as it is based on start up and phase-in of testing and 
cut-points that do not reflect the current program configuration or 
start dates that the State will actually implement. EPA believes, based 
on the available modeling and its own extrapolation of expected 
emission reductions from the program, that the State program will at 
least meet the low enhanced performance standard. However, the State 
must conduct new modeling using the actual program configuration and 
start dates to verify that the performance standard will in fact be 
met. For example, phase-in cutpoints corresponding to the test-type and 
correct program start-up dates should be included in the new modeling.
    EPA is proposing conditional interim approval of the State's 
program at this time consistent with the intent of the NHSDA that state 
I/M programs be promptly approved and implemented. EPA proposes that 
this approval be conditioned upon the requirement that the State 
conduct and submit the necessary new modeling and demonstration that 
the program will meet the performance standard, within 12 months from 
conditional interim approval. If the State fails to submit this new 
modeling within 12 months, EPA proposes that the conditional interim 
approval will convert to a disapproval upon a letter from EPA 
indicating that the State has failed to submit the modeling and 
demonstration of compliance with the performance standard by the 
required date.
    In addition, the existing I/M Rule requires that the modeling 
demonstrate that the state program has met the performance standard by 
fixed evaluation dates. The first such date is January 1, 2000. 
However, few state programs will be able to demonstrate compliance with 
the performance standard by that date as a result of delays in program 
start up and phase in of testing requirements. EPA believes that based 
on the provisions of the NHSDA, the evaluation dates in the current I/M 
Rule have been superseded. Congress provided in the NHSDA for state 
development of I/M programs that would start significantly later than 
the start dates in the current I/M Rule. Consistent with Congressional 
intent, such programs by definition will not achieve full compliance 
with the performance standard by the beginning of 2000.

[[Page 60247]]

    As explained above, EPA has concluded that the NHSDA superseded the 
start date requirements of the I/M Rule, but that states should still 
be required to start their programs as soon as possible, which EPA has 
determined would be November 15, 1997. Therefore, EPA believes that 
pursuant to the NHSDA, the initial evaluation date should be January 1, 
2002. This evaluation date will allow states to fully implement their 
I/M programs and complete at least one cycle of testing at full 
stringency cutpoints in order to demonstrate compliance with the 
performance standard.
    The State has proposed a decentralized test-and-repair enhanced I/M 
program in the applicable geographic area. This program includes a 
program evaluation in which 0.1 percent of the subject vehicle 
population, at a minimum, will randomly receive a ``NY-TEST,'' IG240 
emissions test. The final design of the evaluation program will be 
based upon discussions with EPA and equipment vendors.
    With the conditions described above, the New York submittal meets 
the network type and program evaluation requirements of the federal I/M 
regulation for interim approval.
Adequate Tools and Resources--40 CFR 51.354
    The federal I/M regulation requires the state to demonstrate that 
adequate funding of the program is available. A portion of the test fee 
or separately assessed per vehicle fee shall be collected, placed in a 
dedicated fund and used to finance the program. Alternative funding 
approaches are acceptable if it is demonstrated that the funding can be 
maintained. Reliance on funding from the state or local general fund is 
not acceptable unless doing otherwise would be a violation of the 
state's constitution. The SIP shall include a detailed budget plan 
which describes the source of funds for personnel, program 
administration, program enforcement, and purchase of equipment. The SIP 
shall also detail the number of personnel dedicated to the quality 
assurance program, data analysis, program administration, enforcement, 
public education and assistance and other necessary functions.
    New York's Clean Air Compliance Act establishes an administrative 
fee of $2.00 per test which is deposited into the Mobile Source Account 
of New York's Clean Air Fund. The fund is intended to support I/M 
program activities including planning, implementation, and 
administration. The projected budget and personnel requirements for the 
DMV are $9,644,200 and 159 staff positions respectively. The projected 
budget and personnel requirements for the DEC are $8,355,000 and 80 
staff positions respectively.
    The New York submittal meets the adequate tools and resources 
requirements of the federal I/M regulation for interim approval.
Test Frequency and Convenience--40 CFR 51.355
    The federal I/M regulation established an enhanced I/M performance 
standard which is based on an annual test frequency; however, other 
schedules may be approved if the performance standard is achieved. The 
SIP shall describe the test year selection scheme, how the test 
frequency is integrated into the enforcement process and shall include 
the legal authority, regulations or contract provisions to implement 
and enforce the test frequency. The program shall be designed to 
provide convenient service to the motorist by ensuring short wait 
times, short driving distances and regular testing hours.
    New York's proposed I/M program requires annual inspections. The 
current emission inspection population will be required to get an 
enhanced inspection based upon the expiration of their emission/safety 
inspection sticker. Information will be provided to the public six 
months prior to the implementation of the enhanced program. The 
inspection dates of all vehicles will be tracked by the DMV to assure 
that the inspections take place. The DMV has determined that a minimum 
of 2,500 testing lanes is required for motorist convenience. There are 
approximately 5,000 test-and-repair inspection stations under the 
current inspection program. The DMV also assumes that some test-only 
and high volume lanes may provide additional throughput capability.
    The New York submittal meets the test frequency and convenience 
requirements of the federal I/M regulation for interim approval.
Vehicle Coverage--40 CFR 51.356
    The federal I/M regulation establishes a performance standard for 
enhanced I/M programs which is based on coverage of all 1968 and later 
model year light duty vehicles and light duty trucks up to 8,500 pounds 
GVWR, and includes vehicles operating on all fuel types. Other levels 
of coverage may be approved if the necessary emission reductions are 
achieved. Vehicles registered or required to be registered within the 
I/M program area boundaries and fleets primarily operated within the I/
M program area boundaries and belonging to the covered model years and 
vehicle classes comprise the subject vehicles.
    According to the requirements of 40 CFR 51.356(B)(2), fleets may be 
officially inspected outside of the normal I/M program test facilities, 
if such alternatives are approved by the program administration. 
However, fleet vehicles shall be subject to the same test requirements 
using the same quality control standards as non-fleet vehicles and 
shall be inspected in the same type of test network as other vehicles 
in the state. Vehicles which are operated on federal installations 
located within an I/M program area shall be tested, regardless of 
whether the vehicles are registered in the state or local I/M area.
    The federal I/M regulation requires that the SIP shall include: (a) 
The legal authority or rule necessary to implement and enforce the 
vehicle coverage requirement, (b) a detailed description of the number 
and types of vehicles to be covered by the program and a plan for how 
those vehicles are to be identified including vehicles that are 
routinely operated in the area but may not be registered in the area, 
and (c) a description of any special exemptions including the 
percentage and number of vehicles to be impacted by the exemption. Such 
exemptions shall be accounted for in the emissions reduction analysis.
    New York State's submittal indicates that the DMV will review 
registration files to identify vehicles for the enhanced emissions 
testing program. The vehicle's registration is valid for two years and 
the emission/safety inspection stickers are valid for one year. 
Registration renewals will be denied to any vehicle that has not passed 
an emission inspection. The following vehicles are exempt from 
emissions testing requirements: Diesel and electric powered vehicles, 
model year vehicles 26 years old and older, new vehicle exemption for 
first two years, special class vehicles (i.e., historical, special 
purpose commercial, all terrain vehicles, motorcycles, Classes A, B, 
and C limited use motorcycles, farm dealer, motorcycle dealer, 
transporter, all terrain dealers, light trailer, semi trailer, trailer, 
house trailer, boat, snowmobile and certain vehicles classified by DMV 
as custom or homemade prior to January 1997).
    DMV will inventory federal fleet vehicles and other currently 
unregistered vehicles. Inspection expiration dates will be assigned to 
these vehicles. Enforcement will be accomplished through file checks 
and

[[Page 60248]]

site visits. Fleets may inspect their own vehicles if they become 
licensed inspection facilities and purchase the specified equipment. 
State fleets will be assigned inspection expiration dates as will 
federal vehicles. Registrations will be suspended for a vehicle found 
uninspected. Some large fleets will be given permanent fleet 
registrations. These will expire in October of every year and will be 
electronically renewed if the vehicle passed an emission inspection 
within the year. Fleet vehicles must pass the emissions inspection to 
be eligible for reregistration. New York has an agreement with the New 
York City Department of Environmental Protection and the New York City 
Taxi and Limousine Commission to require I/M inspections three times 
per year for medallion taxicabs.
    The New York submittal meets the vehicle coverage requirements of 
the federal I/M regulation for interim approval.
Test Procedures and Standards--40 CFR 51.357
    The federal I/M regulation requires that written test procedures 
and pass/fail standards shall be established and followed for each 
model year and vehicle type included in the program. Test procedures 
and standards are detailed in 40 CFR 51.357 and in the EPA document 
entitled ``High-Tech I/M Test Procedures, Emission Standards, Quality 
Control Requirements, and Equipment Specifications,'' EPA-AA-EPSD-IM-
93-1, dated April 1994. The federal I/M regulation also requires 
vehicles that have been altered from their original certified 
configuration (i.e., engine or fuel switching) to be subject to the 
requirements of Sec. 51.357(d).
    New York's test procedures are listed in the State's draft 
technical specifications and the emissions inspection procedure manual, 
appendices to its I/M SIP submittal. These procedures do not correspond 
to EPA's procedures due to the differences in the testing equipment.
    Under the State's test procedures, vehicles will be tested without 
prior repair or adjustment at the test facility. Vehicle operators will 
have access to the test area to observe the inspection in most 
stations. Vehicles will be rejected from testing if the exhaust system 
is missing or leaking or other unsafe conditions are evident. The test 
procedure provides for a retest after repair for any vehicle that 
failed the original test. All test procedures and standards including 
visual equipment inspections for the chassis model year and type will 
be applied for vehicles with switched engines. Altered vehicles from 
one fuel type to another will be tested according to procedures and 
standards of the current fuel type.
    New York performed an evaluation of EPA's pressure and purge tests 
and has determined that there are unresolved built-in problems with 
these tests. Therefore, as an alternative to the pressure and purge 
tests, New York proposes to initially include only gas cap testing and 
expanded model year anti-tampering inspections. EPA is working with 
states to resolve the problems which have been encountered with 
implementation of the purge and pressure tests. When the problems are 
resolved, New York will need to implement the purge and pressure tests 
in order to receive the full amount of credit claimed for these tests 
in its I/M SIP submittal.
    New York's test procedures are based on the use of a transient 
emissions test known as ``Inspection Grade 240 or IG240,'' for which 
the State is now developing basic requirements. The State has submitted 
draft equipment specifications and other supporting data that EPA is 
now evaluating. This sets New York apart from other states considering 
similar test procedures. Furthermore, New York has proven competence in 
establishing new procedures in the past. Therefore, EPA intends to 
allow the State, under a conditional interim approval, to proceed. It 
should be noted, however, that if at any time the State and EPA 
determine that the level of emission reduction credits granted to this 
test differs from the reductions actually achieved, New York will be 
required to re-evaluate its program assumptions and submit results to 
EPA.
    Within 30 days of the publication of this notice, New York must 
submit a commitment to submit final test procedures and standards by a 
date certain which is no later than January 31, 1997. It is essential 
that the State submit final test procedures and standards no later than 
this date because a significant lead time is necessary in order for the 
program to begin testing as planned. If the State fails to commit 
within 30 days to submit approvable final test procedures and standards 
for the IG240 test as specified above, then EPA proposes in the 
alternative to disapprove the New York I/M SIP. If the State makes the 
commitment but this condition is not met, EPA will issue a letter to 
the State indicating that the conditional interim approval has been 
converted to a disapproval.
Test Equipment--40 CFR 51.358
    The federal I/M regulation requires that computerized test systems 
be used for performing any measurement on subject vehicles. The federal 
I/M regulation also requires that the state SIP submittal include 
written technical specifications for all test equipment used in the 
program. The specifications shall describe the emission analysis 
process, the necessary test equipment, the required features, and 
written acceptance testing criteria and procedures.
    The New York submittal contains the written draft technical 
specifications for the test equipment to be used in the program 
including an outline of the software specifications. The specifications 
require the use of computerized test systems. Equipment tampering, 
computerization, system lockouts, and the required data link 
specifications are being developed by the DMV. Since these documents 
have not been finalized, New York's submittal of the test equipment 
specifications cannot be considered complete.
    Within 30 days of the publication of this notice, New York must 
submit a commitment to submit final test equipment specifications by a 
date certain which is no later than January 31, 1997. It is essential 
that the State submit final test equipment specifications no later than 
this date because a significant lead time is necessary in order for the 
program to begin testing as planned. If the State fails to commit 
within 30 days to submit approvable final test equipment specifications 
for the IG240 test as specified above, then EPA proposes in the 
alternative to disapprove the New York I/M SIP. If the State makes the 
commitment but this condition is not met, EPA will issue a letter to 
the State indicating that the conditional interim approval has been 
converted to a disapproval.
Quality Control--40 CFR 51.359
    The federal I/M regulation requires that states implement quality 
control measures to insure that emission measurement equipment is 
calibrated and maintained properly, and that inspection, calibration 
records, and control charts are accurately created, recorded and 
maintained.
    The New York submittal contains quality control measures for the 
emission measurement equipment, record keeping requirements and 
measures to maintain the security of all documents used to establish 
compliance with the inspection requirements.

[[Page 60249]]

However, this portion of the New York submittal does not include a 
description of the quality control requirements as set forth in 
Sec. 51.359 of the federal I/M regulation.
    This is a minor deficiency and must be corrected in the State's 
final I/M SIP revision submitted at the end of the 18-month interim 
period.
Waivers and Compliance Via Diagnostic Inspection--40 CFR 51.360
    The federal I/M regulation allows for the issuance of a waiver, 
which is a form of compliance with the program requirements that allow 
a motorist to comply without meeting the applicable test standards. For 
enhanced I/M programs, an expenditure of at least $450 in repairs, 
adjusted annually to reflect the change in the Consumer Price Index 
(CPI) as compared to the CPI for 1989, is required in order to qualify 
for a waiver. Waivers can only be issued after a vehicle has failed a 
retest performed after all qualifying repairs have been made. Any 
available warranty coverage must be used to obtain repairs before 
expenditures can be counted toward the cost limit. Tampering related 
repairs shall not be applied toward the cost limit. Repairs must be 
appropriate to the cause of the test failure. Repairs for 1980 and 
newer model year vehicles must be performed by a recognized repair 
technician. The federal I/M regulation allows for compliance via a 
diagnostic inspection after failing a retest on emissions and requires 
quality control of waiver issuance. The SIP must set a maximum waiver 
rate and must describe corrective action that would be taken if the 
waiver rate exceeds that committed to in the SIP.
    New York's proposed I/M program will allow the issuance of a $450 
waiver adjusted annually according to the Consumer Price Index 
beginning in 1998. To be eligible for a waiver, the inspection facility 
must verify that: Appropriate emissions repairs were performed, the 
vehicle emission system has not been tampered with, the safety 
inspection has been passed, repairs or adjustments have not resulted in 
the retest being invalid or the acceptance of pollutants in excess of 
their limits, and documented repair costs were at least as much as the 
cost amount. The State has estimated a waiver rate of 3 percent of the 
initially failed vehicles. In the event the actual waiver rate exceeds 
the estimated waiver rate of 3 percent used for estimating the I/M 
program's emission reduction credits, the State will take corrective 
action. No hardship time extensions nor compliance via diagnostic 
inspection will be allowed.
    Although New York's program does include the $450 initial amount, 
it is not clear from the submitted I/M SIP revision whether the CPI 
adjustments account for increases since 1989, as required by section 
502(b)(1)(B)(v)(II) of the CAA and the federal I/M regulation. EPA 
understands the State's reluctance to implement the full CPI adjusted 
amount at program start-up and offered to postpone it consistent with 
the intent of the NHSDA that I/M programs be allowed to start in 1997. 
EPA believes, that consistent with its interpretation that the start 
dates and evaluation dates in EPA's I/M Rule have been extended by 
approximately two years by the NHSDA, the deadline for the full 
implementation of the waiver can also be extended by two years. As a 
result, the repair expenditure waiver must be fully adjusted by the 
increase in the CPI since 1989 no later than January 1, 2000.
    This is a major program element required under the CAA and the I/M 
Rule. Therefore, New York must, within 30 days of the publication of 
this notice, submit a commitment to correct this major deficiency by a 
date certain within 12 months of the publication of the conditional 
interim approval. If the State fails to submit the revised repair 
expenditure waiver within 12 months, EPA proposes that the conditional 
interim approval will convert to a disapproval upon a letter from EPA 
indicating that the State has failed to submit the revised repair 
expenditure waiver by the required date.
Motorist Compliance Enforcement--40 CFR 51.361
    The federal I/M regulation requires that compliance shall be 
ensured through the denial of motor vehicle registration in enhanced I/
M programs unless an exception for use of an existing alternative is 
approved. An enhanced I/M area may use either sticker-based enforcement 
programs or computer-matching programs if either of these programs were 
used in the existing program that was operating prior to passage of the 
CAA, and if it can be demonstrated that the alternative has been more 
effective than registration denial. The SIP shall provide information 
concerning the enforcement process, legal authority to implement and 
enforce the program, and a commitment to a compliance rate to be used 
for modeling purposes and to be maintained in practice.
    Part 301 of New York State's Vehicle and Traffic Law provides the 
legal authority to implement registration denial motorist enforcement. 
New York's I/M SIP revision commits to a compliance rate of 98 percent 
which was used in the performance standard modeling demonstration. The 
State's submittal meets the motorist compliance enforcement 
requirements of the federal I/M regulation for interim approval.
Motorist Compliance Enforcement Program Oversight--40 CFR 51.362
    The federal I/M regulation requires that the enforcement program 
shall be audited regularly and shall follow effective program 
management practices, including adjustments to improve operation when 
necessary. The I/M SIP revision shall include quality control and 
quality assurance procedures to be used to insure the effective overall 
performance of the enforcement system. An information management system 
shall be established which will characterize, evaluate and enforce the 
program.
    New York's registration system is computer-based and controlled by 
a DMV computer in Albany. The accuracy of the inspection data input 
into the system will be assured by bar coded vehicle information on the 
registration which is attached to the vehicle's windshield. If 
incorrect information is entered into the computer, a match would not 
be found and the inspection would not be allowed. New York has trained 
personnel and written procedures for the compliance enforcement 
program. Staff will be disciplined, dismissed or prosecuted if 
discovered engaged in any improprieties. The DMV will annually conduct 
two program audits and one covert investigation at each inspection 
station. New York will determine the equipment audit frequency with the 
development of the equipment specifications.
    New York's submittal meets the motorist compliance enforcement 
program oversight requirements of the federal I/M regulation for 
interim approval.
Quality Assurance--40 CFR 51.363
    The federal I/M regulation requires that an ongoing quality 
assurance program shall be implemented to discover, correct and prevent 
fraud, waste, and abuse in the program. The program shall include 
covert and overt performance audits of the inspectors, audits of 
station and inspector records, equipment audits, and formal training of 
all state I/M enforcement officials and auditors. A description of the 
quality assurance program which includes written procedure manuals on 
the above discussed items must be submitted as part of the I/M SIP 
revision.

[[Page 60250]]

    Details of New York's quality assurance program have not been 
developed and, therefore, were not provided in the I/M SIP revision 
submittal.
    This is a minor deficiency and must be corrected in the State's 
final I/M SIP revision submitted at the end of the 18-month interim 
period.
Enforcement Against Contractors, Stations and Inspectors--40 CFR 51.364
    The federal I/M regulation requires that enforcement against 
licensed stations, contractors and inspectors shall include swift, 
sure, effective, and consistent penalties for violation of program 
requirements. The federal I/M regulation requires the establishment of 
minimum penalties for violations of program rules and procedures that 
can be imposed against stations, contractors and inspectors. The legal 
authority for establishing and imposing penalties, civil fines, license 
suspensions and revocations must be included in the I/M SIP revision. 
State quality assurance officials shall have the authority to 
temporarily suspend station and/or inspector licenses immediately upon 
finding a violation that directly affects emission reduction benefits, 
unless constitutionally prohibited. An official opinion explaining any 
state constitutional impediments to immediate suspension authority must 
be included in the I/M SIP revision submittal. The I/M SIP revision 
shall describe the administrative and judicial procedures and 
responsibilities relevant to the enforcement process, including which 
agencies, courts and jurisdictions are involved, who will prosecute and 
adjudicate cases and the resources and sources of those resources which 
will support this function.
    Part 79 of 15NYCRR, Motor Vehicle Inspection Regulations, gives the 
DMV authority for enforcement against contractors, stations and 
inspectors. The DMV will utilize triggers to identify violating 
stations and inspectors. If an inspector is found to be incompetent, 
that inspector will not be allowed to perform inspections until 
successful completion of a written examination. Failure of this 
examination would result in the revocation of the inspector's license. 
Stations or inspectors found committing serious violations will have 
their licenses suspended pending a hearing and will be expeditiously 
moved through the hearing process. A penalty of $350 per violation will 
be assessed upon the inspection station and/or the inspector for 
violations of the inspection requirements. Records of all enforcement 
activities will be kept for five years and reported on an annual basis.
    EPA's I/M Rule requires monetary penalties for gross violations to 
be at least $100 or five times the inspection fee, whichever is higher. 
New York has proposed a $20 inspection fee, making the minimum per 
violation penalty $100. Since New York's penalty schedule exceeds this 
amount, it is acceptable. The State's submittal meets the enforcement 
against contractors, stations and inspectors requirements of the 
federal I/M regulation for interim approval.
Data Collection--40 CFR 51.365
    Accurate data collection is essential to the management, evaluation 
and enforcement of an I/M program. The federal I/M regulation requires 
data to be gathered on each individual test conducted and on the 
results of the quality control checks of test equipment required under 
40 CFR 51.359.
    New York's proposed I/M program includes the elements of the data 
collection elements in the federal I/M regulation. New York will hire a 
contractor for data management. A central database will be established 
to support real-time and batch electronic transmissions from the 
testing facilities. The data manager will supply batch data to DEC.
    New York's submittal meets the data collection requirements of the 
federal I/M regulation for interim approval.
Data Analysis and Reporting--40 CFR 51.366
    Data analysis and reporting are required to allow for monitoring 
and evaluation of the program by the state and EPA. The federal I/M 
regulation requires annual reports to be submitted which provide 
information and statistics and summarize activities performed for each 
of the following programs: testing, quality assurance, quality control 
and enforcement. These reports are to be submitted by July and shall 
provide statistics for the period of January to December of the 
previous year. A biennial report shall be submitted to EPA which 
addresses changes in program design, regulations, legal authority, 
program procedures and any weaknesses in the program found during the 
two-year period and how these problems will be or were corrected.
    New York's submittal provides analysis and reporting descriptions 
as well as an acceptable schedule for submittal of such reports. 
Therefore, the State's submittal meets the data analysis and reporting 
requirements of the federal I/M regulation for interim approval.
Inspector Training and Licensing or Certification--40 CFR 51.367
    The federal I/M regulation requires all inspectors to be formally 
trained and licensed or certified to perform inspections.
    Prior to the implementation of the enhanced I/M program, New York 
will require that all currently certified emission inspectors be 
relicensed for the performance of the enhanced test. Inspectors will be 
recertified every three years.
    New York's revised inspector certification program is currently 
under development.
    This is a minor deficiency and must be corrected in the State's 
final I/M SIP revision submitted at the end of the 18-month interim 
period.
Public Information and Consumer Protection--40 CFR 51.368
    The federal I/M regulation requires the I/M SIP revision to include 
public information and consumer protection programs.
    New York's public information program is under development. The 
program will provide information on the benefits of an enhanced I/M 
program through public service address messages, registration inserts, 
pamphlets, vehicle inspection demonstrations, auto show participation, 
and vehicle repair effectiveness demonstrations. Motorists that fail 
the test will be provided a diagnostic report by the inspection 
station. The DMV will protect the public from fraud and abuse by 
inspectors, mechanics and others involved in the I/M program. A repair 
form will be required to be completed for each vehicle that fails the 
test and submitted to the DMV for the development of a database.
    During the comment period for the November 5, 1992 federal I/M 
regulation, EPA received a number of comments expressing concerns about 
consumer protection with regard to motor vehicle repairs. As a result, 
Sec. 51.368 of the federal I/M regulation includes a requirement for 
inspection programs to collect, and make available to motorists, data 
on the effectiveness of repairs performed by repair stations on 
vehicles that fail the initial test. New York's submittal includes a 
requirement for motorists with failing vehicles to return a repair form 
indicating the types of repairs made and whether or not they were 
successful. However, it makes no provision for motorists to have access 
to the compiled data either through

[[Page 60251]]

periodic reports or through some form of specially generated printout 
indicating which stations in the motorist's vicinity are qualified to 
make the needed repairs.
    Since the details of New York's public information program are 
still under development and it does not include provision for motorists 
to have access to the compiled data, New York must make corrections to 
this section of the I/M SIP revision.
    This is a minor deficiency and must be corrected in the State's 
final I/M SIP revision submitted at the end of the 18-month interim 
period.
Improving Repair Effectiveness--40 CFR 51.369
    Effective repairs are the key to achieving program goals. The 
federal I/M regulation requires States to take steps to ensure that the 
capability exists in the repair industry to repair vehicles. The I/M 
SIP revision must include a description of the technical assistance 
program to be implemented, a description of the procedures and criteria 
to be used in meeting the performance monitoring requirements in the 
federal I/M regulation, and a description of the repair technician 
training resources available in the community.
    New York is claiming only 50 percent credit for its technician 
training program because although improvements will be made to the 
program, licensing or certification will not be required for the 
mechanics to perform repairs on the vehicles. In addition, New York 
proposes to phase-in the emissions test cutpoints to allow the repair 
industry time to adapt to the new tests and obtain the enhanced 
training. The DMV will provide information to repair technicians 
related to the diagnosis and repair of vehicles that fail the I/M test 
and monitor the performance of the test-and-repair facilities. The 
State will be developing improvements to the current training 
curriculum related to the diagnosis and repair of vehicles failing the 
I/M test.
    New York's submittal meets the improving repair effectiveness 
requirements of the federal I/M regulation for interim approval.
Compliance With Recall Notices--40 CFR 51.370
    The federal I/M regulation requires states to establish methods to 
ensure that vehicles that are subject to enhanced I/M and are included 
in an emission related recall receive the required repairs prior to 
completing the emission test and/or renewing the vehicle registration.
    Under its proposed I/M program the State will notify the motorist 
that his/her vehicle appears on a recall list and that the vehicle must 
be repaired prior to its inspection and renewal. Upon arrival at the 
testing facility, the on-line system will alert the inspector that the 
vehicle has been recalled. The motorist will be required to show 
documentation of the vehicle's repairs.
    New York's submittal meets the compliance with recall notices 
requirements of the federal I/M regulation for interim approval.
On-Road Testing--40 CFR 51.371
    The federal I/M regulation requires on-road testing in enhanced I/M 
areas. The use of either remote sensing devices (RSD) or roadside 
pullovers including tailpipe emission testing can be used to meet the 
requirements of the federal I/M regulation. The program must include 
on-road testing of 0.5 percent of the subject fleet or 20,000 vehicles, 
whichever is less, in the nonattainment area or the enhanced I/M 
program area. Motorists that have passed an emission test and are found 
to be high emitters as a result of an on-road test shall be required to 
pass an out-of-cycle test.
    New York will utilize RSD to perform on-road testing of 20,000 
vehicles annually in the enhanced I/M area. This will be used to 
evaluate the performance of the I/M program. The State is not ready to 
commit to identifying the pass/fail cutpoints that will be utilized in 
the RSD program until a vehicle database is developed and evaluated 
with New York's potential RSD contractor. Passing an out-of-cycle test 
is not required. Therefore, New York must make changes to the element 
of its I/M SIP revision.
    This is a minor deficiency and must be corrected in the State's 
final I/M SIP revision submitted at the end of the 18-month interim 
period.
State Implementation Plan Submissions/Implementation Deadlines--40 CFR 
51.372-51.373
    These sections of the federal I/M regulation require that the state 
outline program milestones and provide an implementation schedule.
    New York's I/M SIP revision submittal contains the proposed 
enhanced I/M program regulations. Draft specifications, procedures and 
requests for proposal (RFPs) for equipment and contractor services have 
not been developed. Licensing and certification of inspectors will be 
performed prior to the start of the program. Mandatory testing is 
scheduled to begin in January of 1998. Full stringency cutpoints may be 
implemented in January 2000.
    With the conditions described above, New York's submittal meets the 
requirements under these sections of the federal I/M regulation for 
interim approval.

III. Discussion for Rulemaking Action

    Today's notice of proposed conditional interim approval begins a 
30-day time period for the State to make a commitment to EPA to correct 
the major deficiencies of the I/M SIP revision that EPA has identified, 
by dates certain as described in this notice. These major deficiencies 
are:

Waiver Expenditure Requirements

    Many of the I/M programs currently operating include waivers for 
vehicles that cannot pass the applicable pass/fail standards, usually 
with a minimum expenditure requirement. Congress included such a 
requirement in the CAA, calling for owners of vehicles that fail an 
initial emissions inspection to spend at least $450, adjusted annually 
by the Consumer Price Index (CPI) as specified in Title V of the CAA, 
before a waiver can be granted. Title V clearly states that CPI 
adjustments must begin as of 1989. Although New York's program does 
include the $450 initial amount, it is not clear from the submitted I/M 
SIP revision whether the CPI adjustments account for increases since 
1989, as required. The cost waiver, including the application of the 
annual CPI adjustment retroactive to 1989, must be fully in place by 
January 1, 2000.

Performance Standard Modeling

    To determine whether the proposed I/M program will reduce vehicle 
emissions sufficiently as defined by the 15 percent plan for the area 
it is necessary to calculate the expected vehicle emissions taking into 
account all the aspects of the program. Parameters such as when the 
program begins, which vehicles are tested, and what type of test will 
be used have a significant impact on the level of emission reductions 
obtained. Section 51.351 of the federal I/M regulation requires that 
states submit, along with their proposed programs, modeling assumptions 
and results using EPA's most recent version of the mobile emissions 
model; currently MOBILE5a.
    New York's submittal includes such modeling. However, it includes 
assumptions for a test method that is still under development and for 
which no emission reduction credits have been established. New York 
assumed that the proposed test procedure has an effectiveness equal to 
the median

[[Page 60252]]

between a two-mode Acceleration Simulation Mode (ASM) test and the 
IM240. The State acknowledges that at this time there is a limited 
basis for assuming this level of effectiveness and has committed to 
gathering the data required to support this assumption.

Test Procedures, Standards and Equipment

    As previously stated, the test used to analyze vehicle emissions 
has a significant impact on the program's effectiveness. Over the two 
decades since I/M programs have been in operation, EPA has collected a 
great deal of information that indicate which test procedures are more 
effective. Since I/M programs comprise a large portion of the 
reductions expected from overall ozone and carbon monoxide reduction 
plans, it is important for EPA to review program parameters before 
testing begins. As a result, states may be able to avoid program 
development problems.
    Sections 51.357 and 51.358 of the federal I/M regulation require 
states to provide a clear step-by-step description of the test 
equipment, test process, and the pass/fail standards to be used. Since 
New York's test has not been fully developed, the State has yet to 
outline its test procedure. This must be done well in advance of 
program start.
    Within 30 days of publication of this notice, the State must make a 
commitment to EPA to correct these major deficiencies, by dates 
certain. In the case of the test procedures, standards and equipment 
specifications EPA is requiring that the State submit final versions of 
these materials by January 31, 1997. EPA believes that the State must 
finalize these elements far in advance of the planned start date for 
the program so that equipment may be purchased and installed and the 
program's start date is not jeopardized. In the case of the performance 
standard modeling and the waiver expenditure requirements, EPA is 
requiring that the State submit the required modeling and the revised 
waiver expenditure requirements no later than 12 months from the date 
of the publication of the notice of conditional interim approval. If 
the State does not make such a commitment within 30 days, EPA today is 
proposing in the alternative that this SIP revision be disapproved.
    If EPA disapproves this submission or if the State does not correct 
the major deficiencies identified above and implement the interim 
program so that the conditional interim approval converts to a 
disapproval pursuant to section 110(k), EPA, under section 179(a)(2), 
must apply one of the sanctions set forth in section 179(b) within 18 
months of such disapproval or finding. Section 179(b) provides two 
sanctions available to the Administrator: highway funding and the 
imposition of emission offset requirements. In EPA's August 4, 1994 
final sanctions rule, (See 59 FR 39832) the sequence of mandatory 
sanctions for findings and disapprovals made pursuant to section 179 of 
the CAA was finalized. This rulemaking states that the section 
179(b)(2) offset sanction applies in an area 18 months from the date 
when the EPA makes a finding or a disapproval under section 179(a) with 
regard to that area. Furthermore, the section 179(b)(1) highway funding 
restrictions apply in an area six months following application of the 
offset sanction. This nondiscretionary process for imposing and lifting 
sanctions is set forth at 40 CFR 52.31.
    If New York makes the commitment within 30 days, EPA's conditional 
interim approval of the plan will last until the date by which New York 
has committed to cure all of the deficiencies. EPA expects that within 
this period the State will not only correct the deficiencies as 
committed to by the State, but that the State will also begin program 
start-up by November 15, 1997. If New York does not correct the major 
deficiencies and implement the interim program by the required dates, 
EPA is proposing in this notice that the conditional interim approval 
will be converted to a disapproval after a finding letter is sent to 
the State.

IV. Explanation of the Interim Approval

    At the end of the 18-month interim period, the approval status for 
this program will automatically lapse pursuant to the NHSDA. It is 
expected that New York will at that time be able to make a 
demonstration of the program's effectiveness using the appropriate 
evaluation criteria. Since EPA expects that these programs will have 
started by November 15, 1997, New York will have at least six months of 
program data that can be used for the demonstration. If New York fails 
to provide a demonstration of the program's effectiveness to EPA within 
18 months of the conditional interim approval, the interim approval 
will lapse, and EPA will be forced to disapprove the State's I/M SIP 
revision. If New York's program evaluation demonstrates a lesser amount 
of emission reductions actually realized than were claimed in the 
State's previous submittal, EPA will adjust the State's emission 
reduction credits accordingly, and use this information to act on the 
State's final I/M program.

V. Further Requirements for Permanent I/M SIP Approval

    At the end of the 18-month interim period, which is started by the 
conditional interim approval of the I/M SIP revision, final approval of 
the State's plan will be granted based upon the following criteria:
    (1) New York has complied with all the conditions of its commitment 
to EPA,
    (2) EPA's review of New York's program evaluation confirms that the 
appropriate amount of program credit was claimed by the State and was 
achieved with the interim program,
    (3) Final program regulations are submitted to EPA, and
    (4) New York's I/M program meets all of the requirements of EPA's 
I/M Rule, including those deficiencies found de minimis for purposes of 
interim approval.

VI. EPA's Evaluation of the Interim Submittal

    EPA is proposing a conditional interim approval of the New York I/M 
SIP revision which was submitted on March 27, 1996. EPA is soliciting 
public comments on the issues discussed in this notice or on other 
relevant matters. These comments will be considered before taking 
subsequent action. Interested parties may participate in the federal 
rulemaking procedure by submitting written comments to the EPA Regional 
office listed in the ADDRESSES section of this notice.

Proposed Action

    EPA is proposing conditional interim approval of this revision to 
the New York SIP for an enhanced I/M program based on certain 
conditions.

Major Deficiencies

    (1) New York must commit within 30 days of the publication of this 
notice to implement the $450 waiver plus CPI adjustment retroactive to 
1989 no later than January 1, 2000. This commitment must be fulfilled 
by a date certain, but no later than 12 months after conditional 
interim approval.
    (2) New York must commit within 30 days of the publication of this 
notice to submit modeling results once acceptable test procedures and 
credits have been developed for IG240. This commitment must be 
fulfilled by a date certain, but no later than 12 months after 
conditional interim approval.
    (3) New York must commit within 30 days of the publication of this 
notice to submit IG240 equipment, test

[[Page 60253]]

procedures, standards and equipment specifications. Because early 
finalization of these elements is critical to the program being able to 
start by the planned date, these elements must be submitted by January 
31, 1997.

Minor Deficiencies

    New York must correct these minor deficiencies in its final 
regulations to be submitted after the 18-month interim period.
    (1) New York's must submit quality control measures in accordance 
with the requirements set forth in 40 CFR Part 51.359.
    (2) New York must complete the development of the inspector 
training and certification program.
    (3) New York must finalize plans for its data collection system.
    (4) New York must complete the public information program, 
including the repair station report card.
    (5) New York must commit to perform on-road testing in accordance 
with the requirements set forth in section 51.371 of the federal I/M 
regulation.
    (6) New York must complete the development of the quality assurance 
program.
    Nothing in this action should be construed as permitting or 
allowing or establishing a precedent for any future request for 
revision to any state implementation plan. Each request for revision to 
the state implementation plan shall be considered separately in light 
of specific technical, economic, and environmental factors and in 
relation to relevant statutory and regulatory requirements.

Administrative Requirements

Executive Order 12866

    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 (OMB) has 
exempted this regulatory action from E.O. 12866 review.

Regulatory Flexibility Act

    Under the Regulatory Flexibility Act, 5 U.S.C. 600 et seq., EPA 
must prepare a regulatory flexibility analysis assessing the impact of 
any proposed or final rule on small entities. 5 U.S.C. 603 and 604. 
Alternatively, EPA may certify that the rule will not have a 
significant impact on a substantial number of small entities. Small 
entities include small businesses, small not-for-profit enterprises, 
and government entities with jurisdiction over populations of less than 
50,000.
    Conditional approvals of SIP submittals under section 110 and 
subchapter I, part D of the CAA do not create any new requirements but 
simply approve requirements that the State is already imposing. 
Therefore, because the Federal SIP approval does not impose any new 
requirements, I certify that it does not have a significant impact on 
any small entities affected. Moreover, due to the nature of the 
Federal-State relationship under the CAA, preparation of a flexibility 
analysis would constitute federal inquiry into the economic 
reasonableness of state action. The Clean Air Act forbids EPA to base 
its actions concerning SIPs on such grounds. Union Electric Co. v. U.S. 
EPA, 427 U.S. 246, 255-66 (1976); 42 U.S.C. 7410(a)(2).
    If the conditional approval is converted to a disapproval under 
section 110(k), based on the State's failure to meet the commitment, it 
will not affect any existing State requirements applicable to small 
entities. Federal disapproval of the State submittal does not affect 
its state-enforceability. Moreover, EPA's disapproval of the submittal 
does not impose a new federal requirement. Therefore, EPA certifies 
that this disapproval action does not have a significant impact on a 
substantial number of small entities because it does not remove 
existing requirements nor does it substitute a new federal requirement.

Unfunded Mandates

    Under section 202 of the Unfunded Mandates Reform Act of 1995 
(``Unfunded Mandates Act''), signed into law on March 22, 1995, EPA 
must prepare a budgetary impact statement to accompany any proposed or 
final rule that includes a federal mandate that may result in estimated 
costs to State, local, or tribal governments in the aggregate; or to 
private sector, of $100 million or more. Under section 205, EPA must 
select the most cost-effective and least burdensome alternative that 
achieves the objectives of the rule and is consistent with statutory 
requirements. Section 203 requires EPA to establish a plan for 
informing and advising any small governments that may be significantly 
or uniquely impacted by the rule.
    EPA has determined that the approval action proposed 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.
    The Administrator's decision to approve or disapprove the SIP 
revision will be based on whether it meets the requirements of section 
110(a)(2)(A)-(K) and part D of the Clean Air Act, as amended, and EPA 
regulations in 40 CFR Part 51.

List of Subjects in 40 CFR Part 51

    Environmental protection, Air pollution control, Carbon monoxide, 
Hydrocarbons, Incorporation by reference, Intergovernmental relations, 
Nitrogen dioxide, Ozone, Reporting and record keeping requirements, 
Volatile organic compounds.

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

    Dated: November 6, 1996.
William J. Muszynski,
Acting Regional Administrator.
[FR Doc. 96-29660 Filed 11-26-96; 8:45 am]
BILLING CODE 6560-50-P