[Federal Register Volume 63, Number 184 (Wednesday, September 23, 1998)]
[Rules and Regulations]
[Pages 50766-50769]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-25330]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[CA 206-0096a; FRL-6164-4]


Approval and Promulgation of Implementation Plans; California 
State Implementation Plan Revision, Placer County Air Pollution Control 
District

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: EPA is taking direct final action on revisions to the 
California State Implementation Plan. The revisions concern negative 
declarations from the Placer County Air Pollution Control District 
(PCAPCD) for seven source categories that emit volatile organic 
compounds (VOC) and five source categories that emit oxides of nitrogen 
(NOX). The PCAPCD has certified that these source categories 
are not present in the District and this information is being added to 
the federally approved State Implementation Plan (SIP). The intended 
effect of approving these negative declarations is to meet the 
requirements of the Clean Air Act, as amended in 1990 (CAA or the Act). 
Thus, EPA is finalizing the approval of these revisions into the 
California SIP under provisions of the CAA regarding EPA action on SIP 
submittals, SIPs for national primary and secondary ambient air quality 
standards, and plan requirements for nonattainment areas.

DATES: This rule is effective on November 23, 1998 without further 
notice, unless EPA receives adverse comments by October 23, 1998. If 
EPA receives such comments, it will publish a timely withdrawal in the 
Federal Register informing the public that this rule will not take 
effect.

ADDRESSES: Written comments must be submitted to Andrew Steckel, 
Rulemaking Office, Air Division, (AIR-4) at the address below. Copies 
of the submitted negative declarations are available for public 
inspection at EPA's Region IX office and also at the following 
locations during normal business hours.


[[Page 50767]]


Rulemaking Office (AIR-4), Air Division, U.S. Environmental Protection 
Agency, Region IX, 75 Hawthorne Street, San Francisco, CA 94105
Air Docket (6102), U.S. Environmental Protection Agency, 401 ``M'' 
Street, S.W., Washington, D.C. 20460
California Air Resources Board, Stationary Source Division, Rule 
Evaluation Section, 2020 ``L'' Street, Sacramento, CA 95812
Placer County Air Pollution Control District, 11464 ``B'' Avenue, 
Auburn, CA 95603

FOR FURTHER INFORMATION CONTACT: Julie A. Rose, Rulemaking Office (AIR-
4), Air Division, U.S. Environmental Protection Agency, 75 Hawthorne 
Street, San Francisco, CA 94105, Telephone: (415) 744-1184.

SUPPLEMENTARY INFORMATION:

I. Applicability

    The revisions being approved as additional information for the 
California SIP include seven negative declarations for VOC source 
categories from the PCAPCD: (1) aerospace coatings, (2) industrial 
waste water treatment, (3) plastic parts coatings (business machines), 
(4) plastic parts coatings (other), (5) shipbuilding and repair, (6) 
synthetic organic chemical manufacturing (SOCMI)--batch plants, and (7) 
SOCMI--reactors. The revision also includes five negative declarations 
for NOX source categories from the PCAPCD: (1) Nitric and 
Adipic Acid Manufacturing Plants, (2) Utility Boilers, (3) Cement 
Manufacturing Plants, (4) Glass Manufacturing Plants, and (5) Iron and 
Steel Manufacturing Plants. These negative declarations were submitted 
by the California Air Resources Board (CARB) to EPA on February 25, 
1998.

II. Background

    On March 3, 1978, EPA promulgated a list of ozone nonattainment 
areas under the provisions of the Clean Air Act, as amended in 1977 
(1977 Act or pre-amended Act), that included the PCAPCD within the 
Sacramento Metropolitan Area (SMA). 43 FR 8964, 40 CFR 81.305. Because 
these areas were unable to meet the statutory attainment date of 
December 31, 1982, California requested under section 172 (a)(2), and 
EPA approved, an extension of the attainment date to December 31, 1987. 
(40 CFR 52.222). On May 26, 1988, EPA notified the Governor of 
California, pursuant to section 110(a)(2)(H) of the 1977 Act, that the 
above district's portion of the California SIP was inadequate to attain 
and maintain the ozone standard and requested that deficiencies in the 
existing SIP be corrected (EPA's SIP-Call). On November 15, 1990, the 
Clean Air Act Amendments of 1990 were enacted. Pub. L. 101-549, 104 
Stat. 2399, codified at 42 U.S.C. 7401-7671q.
    In amended section 182(b)(2) of the CAA, Congress statutorily 
adopted the requirement that States must develop reasonably available 
control technology (RACT) rules for VOC sources ``covered by a Control 
Techniques Guideline (CTG) document issued by the Administrator between 
November 15, 1990 and the date of attainment.'' On April 28, 1992, in 
the Federal Register, EPA published a CTG document which indicated 
EPA's intention to issue CTGs for eleven source categories and EPA's 
requirement to prepare CTGs for two additional source categories within 
the same time frame. This CTG document established time tables for the 
submittal of a list of applicable sources and the submittal of RACT 
rules for those major sources for which EPA had not issued a CTG 
document by November 15, 1993. The CTG specified that states were 
required to submit RACT rules by November 15, 1994 for those categories 
for which EPA had not issued a CTG document by November 15, 1993.
    Section 182(f) contains the air quality planning requirements for 
the reduction of NOX emissions through RACT. On November 25, 
1992, EPA published a proposed rule entitled ``State Implementation 
Plans; Nitrogen Oxides Supplement to the General Preamble; Clean Air 
Act Amendments of 1990 Implementation of Title I; Proposed Rule,'' (the 
NOX Supplement) which describes the requirements of section 
182(f). The NOX Supplement should be referred to for further 
information on the NOX requirements and is incorporated into 
this document by reference. Section 182(f) of the Clean Air Act 
requires states to apply the same requirements to major stationary 
sources of NOX (``major'' as defined in section 302 and 
section 182(c), (d), and (e)) as are applied to major stationary 
sources of volatile organic compounds (VOCs), in moderate or above 
ozone nonattainment areas. Since the SMA is classified as a severe 
nonattainment area for ozone, it is also subject to the RACT 
requirements of section 182(b)(2), cited above.
    Section 182(b)(2) requires submittal of RACT rules for major 
stationary sources of VOC emissions (not covered by a pre-enactment 
control technique guidelines (CTG) document or a post-enactment CTG 
document) by November 15, 1992. There were no NOX CTGs 
issued before enactment and EPA has not issued a CTG document for any 
NOX category since enactment of the CAA.
    Section 182(b)(2) applies to areas designated as nonattainment 
prior to enactment of the amendments and classified as moderate or 
above as of the date of enactment. The SMA is classified as severe; 
1 therefore, SMA was subject to the post-enactment CTG 
requirement and the November 15, 1994 deadline. For source categories 
not represented within the portions of the SMA designated nonattainment 
for ozone, EPA requires the submission of a negative declaration 
certifying that those sources are not present.
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    \1\ Sacramento Metropolitan Area retained its designation of 
nonattainment and was classified by operation of law pursuant to 
sections 107(d) and 181(a) upon the date of enactment of the CAA. 
See 55 FR 56694 (November 6, 1991). The Sacramento Metropolitan Area 
was reclassified from serious to severe on June 1, 1995. See 60 FR 
20237 (April 25, 1995).
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    The seven VOC and five NOX negative declarations were 
adopted on October 9, 1997 and submitted by the State of California on 
February 25, 1998. The submitted negative declarations were found to be 
complete on April 7, 1998 pursuant to EPA's completeness criteria that 
are set forth in 40 CFR part 51 Appendix V 2 and are being 
finalized for approval into the SIP as additional information.
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    \2\ EPA adopted the completeness criteria on February 16, 1990 
(55 FR 5830) and, pursuant to section 110(k)(1)(A) of the CAA, 
revised the criteria on August 26, 1991 (56 FR 42216).
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    This document addresses EPA's direct final action for the PCAPCD 
negative declarations for the following VOC categories: (1) aerospace 
coatings, (2) industrial waste water treatment, (3) plastic parts 
coatings (business machines), (4) plastic parts coatings (other), (5) 
shipbuilding and repair, (6) SOCMI--batch plants, and (7) SOCMI--
reactors. The submitted negative declarations represent seven of the 
thirteen source categories listed in EPA's CTG document.3 
The submitted negative declarations certify that there are no major 
facilities in these VOC or NOX source categories located 
inside PCAPCD's portion of the SMA. VOCs contribute to the production 
of ground level ozone and smog. These negative declarations were 
adopted as part of PCAPCD's effort to meet the requirements of section 
182(b)(2) of the CAA.
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    \3\ PCAPCD has submitted RACT rules for five VOC source 
categories: Autobody Refinishing, Clean Up Solvents, Offset 
Lithography, Volatile Organic Liquid Storage Tanks, and Wood 
Furniture. PCAPCD is reviewing the Achieveable Control Technology 
(ACT) document on SOCMI Distillation to determine whether if they 
have a major source in that source category.
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    This document also addresses EPA's direct final action for the 
PCAPCD

[[Page 50768]]

negative declarations for the following NOX categories: (1) 
Nitric and Adipic Acid Manufacturing Plants, (2) Utility Boilers, (3) 
Cement Manufacturing Plants, (4) Glass Manufacturing Plants, and (5) 
Iron and Steel Manufacturing Plants. The submitted negative 
declarations represent five of the nine required NOX source 
categories. 4 NOX contributes to the production 
of ground level ozone and smog. These negative declarations were 
adopted as part of PCAPCD's effort to meet the requirements of section 
182(b)(2) of the CAA.
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    \4\ PCAPCD has submitted RACT rules for two source categories: 
Stationary Combustion Gas Turbines and Biomass Boilers. PCAPCD has 
also developed rules for Process Heaters and Industrial, Commercial, 
and Institutional Boilers. PCAPCD is reviewing the ACT for 
Stationary Internal Combustion Engines to determine whether a major 
source exists in that district.
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III. EPA Evaluation and Action

    In determining the approvability of a negative declaration, EPA 
must evaluate the declarations for consistency with the requirements of 
the CAA and EPA regulations, as found in section 110 of the CAA and 40 
CFR part 51 (Requirements for Preparation, Adoption, and Submittal of 
Implementation Plans).
    An analysis of PCAPCD's emission inventory revealed that there are 
no major sources of VOC emissions from: aerospace coatings, industrial 
waste water treatment, plastic parts coatings (business machines), 
plastic parts coatings (other), shipbuilding and repair, SOCMI--batch 
plants, and SOCMI--reactors. An analysis of PCAPCD's emission inventory 
also revealed that there are no major sources of NOX 
emissions from: Nitric and Adipic Acid Manufacturing Plants, Utility 
Boilers, Cement Manufacturing Plants, Glass Manufacturing Plants, and 
Iron and Steel Manufacturing Plants. PCAPCD's review of their permit 
files also indicated that major sources in these source categories do 
not exist in the PCAPCD. In a Resolution dated October 9, 1997, the 
PCAPCD Board affirmed that the PCAPCD does not have any major 
stationary sources in these source categories located within the 
federal ozone nonattainment planning area.
    EPA has evaluated these negative declarations and has determined 
that they are consistent with the CAA, EPA regulations, and EPA policy. 
PCAPCD's negative declarations for the VOC and NOX sources 
listed above are being approved under section 110(k)(3) of the CAA as 
meeting the requirements of section 110(a) and Part D.
    EPA is publishing this document without prior proposal because the 
Agency views this as a noncontroversial amendment and anticipates no 
adverse comments. However, in the proposed rules section of this 
Federal Register publication, the EPA is publishing a separate document 
that will serve as the proposal to approve the SIP revision should 
adverse comments be filed. This action will be effective November 23, 
1998, without further notice unless the Agency receives adverse 
comments by October 23, 1998.
    If the EPA receives such comments, then EPA will publish a timely 
withdrawal in the Federal Register informing the public that the rule 
will not take effect. All public comments received will then be 
addressed in a subsequent final rule based on the proposed rule. The 
EPA will not institute a second comment period on this rule. Any 
parties interested in commenting on this rule should do so at this 
time. If no such comments are received, the public is advised that this 
rule will be effective on November 23, 1998, and no further action will 
be taken on the proposed rule.

IV. Administrative Requirements

A. Executive Orders 12866 and 13045

    The Office of Management and Budget (OMB) has exempted this 
regulatory action from Executive Order (E.O.) 12866, entitled 
``Regulatory Planning and Review.''
    The final rule is not subject to E.O. 13045, entitled ``Protection 
of Children from Environmental Health Risks and Safety Risks,'' because 
it is not an ``economically significant'' action under E.O. 12866.

B. Regulatory Flexibility Act

    The Regulatory Flexibility Act (RFA) generally requires an agency 
to conduct a regulatory flexibility analysis of any rule subject to 
notice and comment rulemaking requirements unless the agency certifies 
that the rule will not have a significant economic impact on a 
substantial number of small entities. Small entities include small 
businesses, small not-for-profit enterprises, and small governmental 
jurisdictions. This final rule will not have a significant impact on a 
substantial number of small entities because SIP approvals under 
section 110 and subchapter I, part D of the Clean Air Act do not create 
any new requirements but simply approve requirements that the State is 
already imposing. Therefore, because the Federal SIP approval does not 
create any new requirements, I certify that this action will not have a 
significant economic impact on a substantial number of small entities. 
Moreover, due to the nature of the Federal-State relationship under the 
Clean Air Act, preparation of 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 estimated 
annual 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 promulgated does not 
include a Federal mandate that may result in estimated annual 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 
requirements. Accordingly, no additional costs to State, local, or 
tribal governments, or to the private sector, result from this action.

D. Submission to Congress and the Comptroller General

    The Congressional Review Act, 5 U.S.C. 801 et seq., as added by the 
Small Business Regulatory Enforcement Fairness Act of 1996, generally 
provides that before a rule may take effect, the agency promulgating 
the rule must submit a rule report, which includes a copy of the rule, 
to each House of the Congress and to the Comptroller General of the 
United States. EPA will submit a report containing this rule and other 
required information to the U.S. Senate, the U.S. House of 
Representatives, and the Comptroller General of the United States prior 
to publication of the rule in the Federal Register. This rule is not a 
``major'' rule as defined by 5 U.S.C. 804(2).

[[Page 50769]]

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 November 23, 1998. 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 shall 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, 
Intergovernmental relations, Oxides of nitrogen, Ozone, Reporting and 
recordkeeping requirements, Volatile organic compounds.

    Dated: September 8, 1998.
Felicia Marcus,
Regional Administrator, Region IX.
    Subpart F of Part 52, chapter I, title 40 of the Code of Federal 
Regulations is amended as follows:

PART 52--[AMENDED]

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

    Authority: 42 U.S.C. 7401 et seq.

Subpart F--California

    2. Section 52.222 is being amended by adding paragraphs (a)(4) and 
(b)(2) to read as follows:


Sec. 52.222  Negative declarations.

    (a) * * *
    (4) Placer County Air Pollution Control District.
    (i) Aerospace Coatings; Industrial Waste Water Treatment; Plastic 
Parts Coating: Business Machines; Plastic Parts Coating: Other; 
Shipbuilding and Repair; Synthetic Organic Chemical Manufacturing, 
Batch Plants; and Synthetic Organic Chemical Manufacturing, Reactors 
were submitted on February 25, 1998 and adopted on October 7, 1997.
* * * * *
    (b) * * *
    (3) Placer County Air Pollution Control District.
    (i) Nitric and Adipic Acid Manufacturing Plants, Utility Boilers, 
Cement Manufacturing Plants, Glass Manufacturing Plants, and Iron and 
Steel Manufacturing Plants were submitted on February 25, 1998 and 
adopted on October 9, 1997.

[FR Doc. 98-25330 Filed 9-22-98; 8:45 am]
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