[Federal Register Volume 62, Number 112 (Wednesday, June 11, 1997)]
[Rules and Regulations]
[Pages 31734-31738]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-15093]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[AZ 68-0011; FRL-5835-8]


Approval and Promulgation of State Implementation Plans; 
Arizona--Maricopa County Ozone Nonattainment Area

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: EPA is taking direct final action approving a State 
Implementation Plan (SIP) revision submitted by the State of Arizona on 
April 29, 1997, establishing a summertime gasoline Reid Vapor Pressure 
(RVP) limit of 7.0 pounds per square inch (psi) for gasoline 
distributed in the Maricopa County (Phoenix) ozone nonattainment area. 
Arizona has lowered the summertime RVP limit for this area to reduce 
emissions of volatile organic compounds (VOC) in accordance with the 
requirements of the Clean Air Act, as amended in 1990 (CAA). Arizona's 
fuel requirement is not preempted by federal fuels requirements because 
EPA is finding that the control measure is necessary for the Maricopa 
area to attain the national ambient air quality standards (NAAQS) for 
ozone and is approving the measure into the Arizona SIP.

DATES: This direct final rule is effective on August 11, 1997, unless 
EPA receives adverse or critical comments by July 11,

[[Page 31735]]

1997. If such comments are received, EPA will withdraw this direct 
final rule and publish a timely notice in the Federal Register.

ADDRESSES: Written comments should be sent to the Region IX contact 
listed below. Copies of the SIP revision are available in the docket 
(#AZ-RVP-97) for this rulemaking, which is open for public inspection 
at the addresses below. A copy of this notice is also available on EPA, 
Region IX's website at http://www.epa.gov/region09.

Air Planning Office (AIR-2), Air Division, Region IX, U.S. 
Environmental Protection Agency, 75 Hawthorne Street, San Francisco, CA 
94105
Arizona Department of Environmental Quality, Office of Outreach and 
Information, First Floor, 3033 N. Central Avenue, Phoenix Arizona 85012

FOR FURTHER INFORMATION CONTACT: Roxanne Johnson, Air Planning Office, 
AIR-2, Air Division, U.S. Environmental Protection Agency, Region IX, 
75 Hawthorne Street, San Francisco, CA 94105, Telephone: (415) 744-
1225.

SUPPLEMENTARY INFORMATION:

I. Reid Vapor Pressure

    Reid Vapor Pressure (RVP) is a measure of a gasoline's volatility 
and is a measurement of the rate at which gasoline evaporates and emits 
VOC; the lower the RVP, the lower the rate of evaporation. The RVP of 
gasoline can be lowered by reducing the amount of its volatile 
components, such as butane. Lowering RVP in the summer months can 
offset the effect of summer temperature upon the volatility of 
gasoline, which, in turn, lowers emissions of VOC. However, because VOC 
is a necessary component in the production of ground level ozone in hot 
summer months, reduction of RVP will help ozone nonattainment areas 
like the Maricopa (Phoenix), Arizona, area attain the NAAQS for ozone 
1 and thereby produce benefits for human health and the 
environment.
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    \1\ The Maricopa area is classified as a ``moderate'' ozone 
nonattainment area under the CAA. 40 CFR 81.303.
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    The primary emission benefits from low RVP gasoline come from 
reductions in evaporative emissions; exhaust emission reductions are 
very small or nonexistent. Because oxides of nitrogen (NOX) 
are a product of combustion, they will not be found in evaporative 
emissions, and low RVP gasoline will have little or no effect on 
NOX.

II. State Submittal

    Section 13 of Arizona House Bill (H.B.) 2001 (1993 Special 
Session), originally codified in Arizona Revised Statutes (ARS) at 
section 41-2083(E) 2, was passed by the Arizona legislature 
on November 12, 1993. This provision limits the maximum summer vapor 
pressure (or Reid vapor pressure) of gasoline fuel sold in the Maricopa 
area to 7.0 psi beginning May 31, 1995 through September 30, 1995, and 
will continue to apply from May 31 through September 30 of each year 
thereafter. Gasoline distributed in the Maricopa area by refineries, 
importers, carriers, retail stations and other end users who sell or 
dispense gasoline must meet the 7.0 psi limit during those periods. The 
State of Arizona submitted section 13 of H.B. 2001 to EPA as a SIP 
revision on April 29, 1997.
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    \2\ This section is currently codified in the ARS as section 41-
2083(F).
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III. Clean Air Act Requirements

    In determining the approvability of a SIP revision, EPA must 
evaluate the proposed revision for consistency with the requirements of 
the CAA and EPA regulations, as found in section 110 and part D of the 
CAA and 40 CFR part 51 (Requirements for Preparation, Adoption, and 
Submittal of Implementation Plans).
    For SIP revisions addressing fuel measures, an additional statutory 
requirement applies. CAA section 211(c)(4)(A) prohibits state 
regulation of a fuel characteristic or component for which EPA has 
adopted a control or prohibition, unless the state control is identical 
to the federal control. Section 211(c)(4)(C) provides an exception to 
this preemption if the measure is approved in a SIP. EPA can approve 
such a SIP provision if it finds that the control or prohibition is 
necessary to achieve a NAAQS. EPA can make this finding if no other 
measures exist that would bring about timely attainment or if other 
measures exist and are technically possible to implement, but are 
unreasonable or impracticable. See section 211(c)(4)(C). The 
requirements of section 211(c)(4) are discussed in further detail 
below.

IV. EPA Evaluation

A. General SIP Requirements

    As discussed below, EPA has evaluated the submitted SIP revision 
and has determined that it is consistent with the requirements of the 
CAA and EPA regulations. On May 8, 1997, EPA found that the April 29, 
1997 SIP revision conformed to EPA's completeness criteria in 40 CFR 
part 51, Appendix V.
    The SIP submittal contains: ARS 41-2083(E) (now section (F)) as 
established in section 13 of 1993 Special Session House Bill 2001; 
documentation of the public notice and hearing regarding the SIP 
revision, dated March 17, 1994; evidence of State legal authority; and 
VOC air quality modeling. Additional supporting information regarding 
enforcement and compliance assurance for the SIP revision can be found 
in the ARS (specifically in Chapter 15, Department of Weights and 
Measures, of title 41) and the Arizona Administrative Code (ARC).
    Arizona Department of Weights and Measures implements the RVP limit 
and has the necessary authority under the ARS and ARC to obtain samples 
(ARS 41-2066(A)), test (ARS 41-2083(c) and ARC R20-2-720), prohibit the 
sale of non-conforming gasoline (ARS 41-2066(A)(2) and ARC R20-2-110), 
and to impose civil penalties on any person who violates the fuel 
requirements of any provision of ARS 41-2083 (ARS 41-2115(a)). EPA has 
concluded that these provisions confer on the State the requisite 
authority to enforce compliance with the 7 psi RVP limit.

B. Section 211(c)(4)

1. Federal Preemption
    CAA section 211(c)(4)(A) preempts certain state fuel regulations by 
prohibiting a state from prescribing or attempting to enforce any 
control or prohibition on any characteristic or component of a fuel or 
fuel additive for the purposes of motor vehicle emission control if the 
Administrator has prescribed under section 211(c)(1) a control or 
prohibition applicable to such characteristic or component of the fuel 
or fuel additive, unless the state prohibition is identical to the 
prohibition or control prescribed by the Administrator.
    EPA first proposed to regulate summertime gasoline RVP in 1987 (52 
FR 31274). EPA's gasoline RVP proposal resulted in a two-phased final 
regulation that Congress incorporated into the CAA at section 211(h). 
Phase I of the regulation took effect in 1990 (54 FR 11868) for the 
years 1990 and 1991. Phase II of the regulation became effective in 
1992 (55 FR 23658). These regulations are found in 40 CFR 80.27. Under 
the regulations, the continental United States is divided into two 
control regions, Class B and Class C. Generally speaking, the Class B 
states are the warmer southern and western states, and Class C states 
are the cooler northern states. The Phase II regulation

[[Page 31736]]

limits the volatility of gasoline sold during the high ozone season to 
9.0 psi RVP for Class C areas and 7.8 psi RVP for Class B ozone 
nonattainment areas. Arizona is a Class B state and is therefore 
required under the federal rule to meet the 7.8 psi RVP standard.
    Arizona has recently requested to opt into EPA's reformulated 
gasoline program (RFG). Should that opt in be approved as has been 
proposed, then the applicable federal standard for RVP in the Maricopa 
ozone nonattainment area would be dictated by the requirements of the 
RFG program. Like the RVP rule, the RFG regulation also divides the 
continental United States into two control regions: Region 1 and Region 
2. The Maricopa area is in Region 1 and would be subject to a maximum 
RVP limitation of 7.2 psi under the federal RFG program. See 40 CFR 
80.41.
    Because Arizona's fuel requirement for the Maricopa nonattainment 
area limiting summertime RVP to 7.0 psi is not identical to the federal 
fuel standards applicable to the fuel characteristic RVP (i.e., federal 
phase II volatility limit of 7.8 psi or federal phase I RFG RVP limit 
of 7.2 psi), Arizona's requirement is preempted unless it is in the 
Arizona SIP.
2. Finding of Necessity
    Section 211(c)(4)(C) allows a state to prescribe and enforce 
controls or prohibitions on the use of a fuel or fuel additive for the 
purposes of motor vehicle emission control if the control or 
prohibition is contained in the applicable SIP. Section 211(c)(4)(C) 
states that the Administrator may approve such provisions in a SIP:

if [s]he finds that the State control or prohibition is necessary to 
achieve the national primary or secondary ambient air quality 
standard which the plan implements. The Administrator may find that 
a state control or prohibition is necessary to achieve that standard 
if no other measures that would bring about timely attainment exist, 
or if other measures exist and are technically possible to 
implement, but are unreasonable or impracticable. The Administrator 
may make a finding of necessity under this subparagraph even if the 
plan for the area does not contain an approved demonstration of 
timely attainment.

    Thus, to implement a state low RVP requirement, a state must submit 
a SIP revision adopting the state fuel control and must include 
specific information showing the measure is necessary to meet the ozone 
NAAQS, based on the statutory specifications for showing necessity.
    The State, the Maricopa County air pollution control agency, and 
the local jurisdictions in Maricopa County have adopted and implemented 
a broad range of ozone control measures including the summertime low 
RVP limit of 7.0 psi, an enhanced inspection and maintenance (I/M) 
program, stage II vapor recovery, an employer trip reduction program, 
many transportation control measures, and numerous stationary and area 
VOC controls. See the MAG 1993 Ozone Plan and Addendum, Maricopa 
Association of Governments, March 1994.
    The State has also recently adopted additional ozone control 
measures and undertaken additional planning efforts. In January of this 
year, the State requested that the Maricopa nonattainment area be 
included in EPA's reformulated gasoline (RFG) program to help avoid any 
ozone NAAQS exceedances.3 Legislation passed in the 1997 
session included adoption of California's off-road engine standards, a 
state reformulated gasoline program,4 and new standards for 
industrial cleaning solvents. Finally, the Arizona Department of 
Environmental Quality (ADEQ) has developed a Voluntary Early Ozone Plan 
(VEOP) including air quality modeling and additional control measures 
beyond those included in the legislation.
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    \3\ By letter dated January 17, 1997, Governor Symington of the 
State of Arizona applied to EPA to include the Maricopa County 
moderate ozone nonattainment area in the federal RFG program. 
Pursuant to the Governor's letter and section 211(k)(6) of the CAA, 
EPA proposed an effective date for the federal RFG program of June 
1, 1997 or 30 days after the publication of the final notice, 
whichever was later. See 62 FR 7164 (February 18, 1997).
    \4\ The State RFG program for the Maricopa area has two phases. 
By June 1, 1998, gasoline sold must meet standards similar to EPA's 
Phase I RFG program or California's Phase II RFG program. Starting 
May 1, 1999, gasoline must meet standards similar to EPA's Phase II 
RFG program or California's Phase II RFG program.
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    The State's RVP SIP submittal includes the Urban Airshed Model 
(UAM) modeling demonstration from the draft VEOP. See Exhibit 6, 
Appendix B of the SIP submittal. The modeling used 1996 as the base 
year and evaluated the effects of existing and future control measures. 
Arizona's low RVP requirement is built into the 1996 base year 
inventory and modeled out to the 1999 5 and 2010 projected 
attainment years.
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    \5\ 1999 was chosen as the modeling year because it is the next 
ozone attainment date in the Clean Air Act after 1996. See CAA 
181(a)(1).
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    In addition to a low RVP requirement, Arizona evaluated all 
reasonable and practicable additional control measures that could be 
implemented in the Maricopa area. The fifteen control measures that 
were evaluated for 1999 are: (1) purge test in I/M (evaluated for 
2010); (2) final I/M cutpoints; (3) I/M testing of constant 4-by-4 
vehicles; (4) federal RFG (both Phase I and Phase II RFG at 7.2 psi 
RVP; (5) adoption of California standards for off-road mobile sources; 
(6) voluntary catalyst replacement program; (7) voluntary vehicle 
retirement program; (8) voluntary commercial lawn mower replacement; 
(9) new standards for the use of industrial cleaning solvents; (10) 
alternative fuels tax incentives; (11) Motor Vehicle Division 
registration enforcement and mandatory insurance; (12) pollution 
prevention; (13) temporary power at construction sites; (14) 
alternative-fueled buses; and (15) traffic light synchronization. See 
Exhibit 5 of the SIP submittal.
    Results from the VOC modeling demonstration showed that, using 7.0 
psi RVP gasoline plus all other measures identified including federal 
RFG, the Maricopa area still fails to attain the 12.0 ppm ozone NAAQS 
in 1999.6 See Exhibit 5 of the SIP submittal. Given this 
result, it is clear that the State's low RVP requirement is a necessary 
component of the strategy to achieve timely attainment of the ozone 
strategy in the Maricopa area and that there are no other measures that 
are reasonable and practicable that would bring about timely 
attainment.
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    \6\ The State is continuing to evaluate the results of the UAM 
modeling in the VEOP. See ``Status Report on the Metropolitan 
Phoenix Voluntary Early Ozone Plan,'' April 1997. This continuing 
evaluation may change some of the modeling results, such as the 
effect of NOX controls on ozone concentrations. Given the 
continued exceedances of the ozone standard in the Maricopa area and 
the area's rapid rate of growth, it is very unlikely that revised 
modeling would show that implementation of all identified control 
measures, including the 7 psi RVP limitation, will reduce emissions 
more than is necessary for timely attainment.
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C. Adjustment of the RVP Lower Limit in the Federal Reformulated Gas 
Program

    The federal RFG program includes standards for the RVP of gasoline. 
The maximum RVP of RFG is controlled primarily because of the increased 
VOC emissions that result from gasoline with higher RVP levels.
    In addition, the minimum RVP standard addresses vehicle 
driveability problems, such as poor starting and running, that can 
occur when low volatility gasoline does not vaporize in the vehicle 
engine. As a result, under 40 CFR 80.42(c)(1), the nationwide 
summertime minimum RVP allowed for RFG is 6.6 psi, although under 40 
CFR 80.45(f)(1) this minimum RVP standard changes to 6.4 psi beginning 
in 1998.

[[Page 31737]]

    Arizona has requested that EPA approve a SIP revision setting a 
maximum summertime volatility standard for the Maricopa area of 7.0 
psi. As a result of today's approval of this SIP revision as well as 
Arizona's opt-in to federal RFG, refiners supplying RFG for the 
Maricopa area for use during the summer will have to meet an RVP 
standard of 6.6 psi minimum (a federal standard) and 7.0 psi maximum 
(the State imposed standard). At the March 18, 1997, public hearing and 
in subsequent comments to the Agency regarding the Maricopa area opt-
in, various refiners suggested that this narrow RVP range would create 
gasoline production problems because of testing variability, but that 
this problem would be resolved if the RVP minimum standard were 6.4 
psi. In addition, the American Automobile Manufacturers Association has 
indicated in a letter to EPA, dated April 4, 1997, that a summertime 
minimum RVP of 6.4 psi for use in the Maricopa area would not create 
vehicle performance problems. (See docket AZ-RVP-97.)
    For these reasons, EPA believes it is appropriate to allow a 
minimum RVP of 6.4 psi for VOC-controlled RFG in the Maricopa area. As 
a result, EPA will forego enforcement of the 6.6 psi minimum RVP 
standard under section 80.42(c)(1) for VOC-controlled RFG used in the 
Maricopa area, including RFG produced for the Maricopa market that is 
used in non-RFG areas around Maricopa, provided the following 
conditions are met.
    (1) RFG must meet a minimum RVP standard of 6.4 psi during the 
period May 1 through October 31.
    (2) All other RFG must meet a minimum RVP standard of 6.6 psi.
    (3) The refiner or importer must specify in the product transfer 
documents, required in section 80.77, the VOC-controlled RFG is for use 
only in the Maricopa covered area.
    Enforcement of the RFG requirements in this manner will expire on 
January 1, 1998. (See EPA letter dated, April 18, 1997, to Urvan 
Sternfels, President, National Petroleum Refiners Association from 
Steven A. Herman, Assistant Administrator).

D. Conclusion

    EPA has evaluated the submitted SIP revision and has determined 
that it is consistent with the CAA and EPA regulations. EPA has also 
found that Arizona's 7 psi RVP limit is necessary for attainment in the 
Maricopa ozone nonattainment area, as required by section 211(c)(4)(C) 
for approval into the SIP. Therefore, Arizona's requirement to limit 
summertime low RVP gasoline is being approved into the Arizona SIP 
under section 110(k)(3) of the CAA as meeting the requirements of 
section 110(a) and part D.
    Nothing in this action should be construed as permitting or 
allowing or establishing a precedent for any future implementation 
plan. Each request for revision to the state implementation plan shall 
be considered separately in light of specific technical, economic, and 
environmental factors and in relation to relevant statutory and 
regulatory requirements.
    EPA is publishing this document without prior proposal because the 
Agency views this as a noncontroversial amendment and anticipates no 
adverse comments. However, in a separate document in this Federal 
Register publication, EPA is proposing to approve the SIP revision 
should adverse or critical comments be filed. This action will be 
effective August 11, 1997, unless, within 30 days of its publication, 
adverse or critical comments are received.
    If the EPA receives such comments, this action will be withdrawn 
before the effective date by publishing a subsequent document that will 
withdraw the final action. All public comments received will then be 
addressed in a subsequent final rule based on this action serving as a 
proposed rule. The EPA will not institute a second comment period on 
this action. Any parties interested in commenting on this action should 
do so at this time. If no such comments are received, the public is 
advised that this action will be effective August 11, 1997.

V. Administrative Requirements

A. 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.

B. Regulatory Flexibility

    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.
    This federal action authorizes and approves requirements previously 
adopted by the State, and imposes no new requirements. Therefore, 
because this action does not impose any new requirements, the 
Administrator certifies 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).

C. 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 
expenditures to State, local, and tribal governments in the aggregate, 
or to the private sector, of $100 million or more in any one year. 
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 this approval action does not include a 
Federal mandate that may result in expenditures of $100 million or more 
to either State, local, and tribal governments in the aggregate, or to 
the private sector in any one year. This Federal action authorizes and 
approves requirements previously adopted by the State, and imposes no 
new requirements. Accordingly, no additional costs to State, local, or 
tribal governments, or to the private sector, will result from this 
action.

D. Submission to Congress and the General Accounting Office

    Under section 801(a)(1)(A) of the Administrative Procedure Act 
(APA) as amended by the Small Business Regulatory Enforcement Fairness 
Act of 1996, EPA submitted a report containing this rule and other 
required information

[[Page 31738]]

to the U.S. Senate, the U.S. House of Representatives and the 
Comptroller General of the General Accounting Office prior to 
publication of the rule in today's Federal Register. This rule is not a 
``major rule'' as defined by section 804(2) of the APA as amended.

E. Petitions for Judicial Review

    Under section 307(b)(1) of the Clean Air Act, petitions for 
judicial review of this action must be filed in the United States Court 
of Appeals for the appropriate circuit by August 11, 1997. Filing a 
petition for reconsideration by the Administrator of this final rule 
does not affect the finality of this rule for the purposes of judicial 
review nor does it extend the time within which a petition for judicial 
review may be filed, and it will not postpone the effectiveness of such 
rule or action. This action may not be challenged later in proceedings 
to enforce its requirements. (See section 307(b)(2).)

List of Subjects in 40 CFR Part 52:

    Environmental protection, Air pollution control, Hydrocarbons, 
Incorporation by reference, Intergovernmental relations, Ozone, 
Volatile organic compounds.

    Note: Incorporation by reference of the State Implementation 
Plan for the State of Arizona was approved by the Director of the 
Federal Register on July 1, 1982.

    Dated: May 28, 1997.
Felicia Marcus,
Regional Administrator.

    For the reasons stated in the preamble, part 52, chapter I, title 
40 of the Code of Federal Regulations is amended as follows:

PART 52--[AMENDED]

Subpart D--Arizona

    1. The authority citation for part 52 continues to read as follows:

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

    2. Section 52.120 is amended by adding paragraph (c)(87) to read as 
follows:


Sec. 52.120  Identification of plan.

* * * * *
    (c) * * *
    (87) New and amended fuel regulations for the following Arizona 
Department of Environmental Quality plan revisions were submitted on 
April 29, 1997, by the Governor's designee.
    (i) Incorporation by reference.
    (A) Arizona Revised Statutes.
    (1) Section 13 of H.B, 2001 (A.R.S. Sec. 41-2083(E)), adopted on 
November 12, 1993.

[FR Doc. 97-15093 Filed 6-10-97; 8:45 am]
BILLING CODE 6560-50-P