[Federal Register Volume 64, Number 108 (Monday, June 7, 1999)]
[Proposed Rules]
[Pages 30276-30287]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-14317]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[CA-227-151; FRL-6355-9]


Approval and Promulgation of State Implementation Plans; 
California--South Coast

AGENCY: Environmental Protection Agency (EPA).


[[Page 30277]]


ACTION: Proposed rule.

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SUMMARY: EPA is concluding the Public Consultative Process (PCP) on 
mobile source emission reductions needed for attainment of the 1-hour 
ozone national ambient air quality standard (NAAQS) in the Los Angeles-
South Coast Air Basin Area (South Coast). EPA is proposing to approve 
the State's update to the state implementation plan (SIP) for ozone in 
the South Coast to reflect the outcome of this process and the 
implementation status of some of the control measures. EPA is also 
proposing to approve the State's joint commitment with EPA to issue 
regulations to eliminate the remaining SIP shortfall as determined 
appropriate for each agency. EPA is proposing these actions under 
provisions of the Clean Air Act (CAA) regarding EPA action on SIP 
submittals, SIPs for NAAQS, and plan requirements for nonattainment 
areas.

DATES: Written comments must be received by June 21, 1999. On June 9, 
1999, from 1 pm to 4 pm, EPA will hold a public meeting in Los Angeles 
to discuss the Public Consultative Process, continuing Federal and 
State mobile source responsibilities and commitments, and future 
revisions to the ozone SIP.

ADDRESSES: Comments should be sent to Dave Jesson, Air Planning Office 
(AIR-2), Environmental Protection Agency, Region IX, 75 Hawthorne 
Street, San Francisco, CA 94105-3901, or [email protected].
    The public meeting to discuss this proposed action will be held in 
the Roybal Conference Room (Room 286) of the Roybal Federal Building, 
255 East Temple Street, Los Angeles, CA.
    The rulemaking docket for this notice is available for public 
inspection at EPA's Region IX office during normal business hours. A 
reasonable fee may be charged for copying parts of the docket.
    Electronic availability: This document is also available as an 
electronic file on EPA's Region 9 Web Page at http://www.epa.gov/
region09.
    Copies of related materials are also available for inspection at 
the following location: California Air Resources Board, 2020 L Street, 
Sacramento, California.

FOR FURTHER INFORMATION CONTACT: Dave Jesson (415) 744-1288 or 
[email protected].

SUPPLEMENTARY INFORMATION:

I. Background

A. 1994 Ozone SIP

    This proposed action relates to the 1994 ozone SIP for the South 
Coast Air Basin (``South Coast'') in California.1 In 1998, 
the South Coast recorded 1-hour levels at or above the NAAQS for ozone 
on 62 days, with a peak concentration of 0.244 parts per million (ppm), 
twice the NAAQS.2 The area continues to have by far the 
worst smog problem in the country.3
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    \1\ For a description of the boundaries of the Los Angeles-South 
Coast Air Basin, see 40 CFR 81.305. The nonattainment area includes 
all of Orange County and the more populated portions of Los Angeles, 
San Bernardino, and Riverside Counties.
    \2\ The 1-hour NAAQS for ozone is 0.12 ppm. Ground-level ozone 
is formed when nitrogen oxides (NOX), volatile organic 
compounds (VOCs), and oxygen react in the presence of sunlight, 
generally at elevated temperatures. Strategies for reducing smog 
typically require reductions in both VOC and NOX 
emissions.
    Ozone causes serious health problems by damaging lung tissue and 
sensitizing the lungs to other irritants. When inhaled, even at very 
low levels, ozone can cause acute respiratory problems; aggravate 
asthma; cause temporary decreases in lung capacity of 15 to 20 
percent in healthy adults, cause inflammation of lung tissue; lead 
to hospital admissions and emergency room visits; and impair the 
body's immune system defenses, making people more susceptible to 
respiratory illnesses, including bronchitis and pneumonia. Children 
are most at risk from exposure to ozone because they breathe more 
air per pound of body weight than adults; their respiratory systems 
are still developing and thus more susceptible to environmental 
threats; and children exercise outdoors more than adults in the 
high-ozone months of summer.
    Direct exposure to NOX and VOCs also has adverse 
public health consequences. Exposure to elevated NOX 
concentrations can reduce breathing efficiency, increase lung and 
airway irritation, and exacerbate symptoms of respiratory illness, 
lung congestion, wheeze, and increased bronchitis in children. VOCs 
include many toxic compounds (such as ()benzene), which can cause 
respiratory, immunological, neurological, reproductive, 
developmental, and mutagenic problems. Some VOCs have been 
identified as probable or known human carcinogens.
    \3\ According to preliminary information from EPA's AIRS 
database, the areas with the highest peak 1-hour ozone concentration 
for 1998 are: South Coast .244 ppm, Houston .230 ppm, Southeast 
Desert (the area immediately to the east of the South Coast) .202 
ppm, Ventura County .174 ppm, San Joaquin Valley .169 ppm, San Diego 
County .164 ppm.
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    EPA approved the 1994 ozone SIP for the South Coast on January 8, 
1997 (62 FR 1150-1187).4 In addition to aggressive State and 
local control measures, the State's plan included seven ``Federal 
measures,'' which the State believed EPA should adopt to control 
national mobile sources. The State attributed to these measures the 
following emission reductions in the South Coast in the year 2010: 109 
tons per day (tpd) of NOX and 47 tpd of VOC.5 
CARB calculated very much smaller emission reductions from the 
``Federal measures'' in other ozone nonattainment areas of the State 
(Ventura, Sacramento, Southeast Desert, San Joaquin, and San Diego).
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    \4\ The 1994 ozone SIP for the South Coast consists of two 
plans: California's 1994 State Implementation Plan for Ozone, which 
deals with the State's control measures, and the South Coast Air 
Quality Management District's 1994 Air Quality Management Plan, 
which includes all of the local control measures and other plan 
elements. The State's plan is available electronically at the 
California Air Resources Board's web site at www.arb.ca.gov/sip/
sip.htm.
    \5\ The South Coast plan sometimes substitutes the term Reactive 
Organic Gases (ROG) for VOC. These terms are essentially synonymous 
and are used interchangeably throughout this document.
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    EPA did not agree that states have the authority to make these SIP 
assignments, but the Agency agreed that the Federal government should 
voluntarily help achieve emission reductions from sources beyond the 
regulatory authority of the State, in view of the unique reduction 
needs of the South Coast, the only ozone nonattainment area classified 
as ``extreme'' under the 1990 CAA Amendments. With the assistance of 
the State, EPA established a Public Consultative Process (PCP) to 
identify future mobile source strategies to provide the remaining 
reductions needed for attainment.
    Both EPA and the California Air Resources Board (CARB) made 
enforceable commitments to adopt additional controls to achieve 
emission reductions determined to be appropriate at the end of the PCP. 
40 CFR 52.238 and 40 CFR 52.220(c)(235)(I)(A)(I). EPA's final approval 
of the 1994 ozone SIP for the South Coast included a projected schedule 
for the PCP, with an initial meeting in July 1996 and a final meeting 
in June 1997 (62 FR 1186).

B. Accomplishments in Reducing Emissions From Mobile Sources

1. Benefits of More Stringent Mobile Source Controls
    After California adopted and submitted the South Coast 1994 ozone 
SIP, CARB and EPA have undertaken stringent new controls for most 
mobile source categories. It is important to note that these new mobile 
source measures will bring multiple benefits not only to the South 
Coast, but also to other areas of California and the nation.
    First, the controls contribute emission reductions needed for 
attainment of the Federal health-based NAAQS for ozone. Despite 
significant progress over the past four decades, the South Coast 
continues to have by far the worst ozone problem in the country. South 
Coast's challenge in attaining the ozone NAAQS derives from the area's 
meteorology and topography, on the one hand, and the area's large 
population and industrial/commercial activity, on the other. As a 
result, attainment of the ozone NAAQS in the South Coast requires 
stringent

[[Page 30278]]

emissions reductions from every pollution source.
    Second, the new mobile source standards also contribute reductions 
of particulate matter (PM, or soot), both by reducing (in many cases) 
emissions of primary particulate and by reducing gaseous PM precursors. 
In the South Coast, NOX is one of the largest sources of PM, 
and emissions of VOC and sulfur oxides also contribute to formation of 
PM. The South Coast has one of the worst PM problems of urban areas in 
the country.
    Third, mobile sources are a contributor to urban air toxics levels. 
For example, a number of adverse health effects have been associated 
with exposure to diesel exhaust levels found in the ambient air.
    Fourth, the new mobile source controls discussed below help achieve 
parity of control, since many of the mobile source categories were 
previously uncontrolled or undercontrolled compared to requirements 
imposed on stationary industrial and commercial sources of pollution.
2. Overview of Federal Measures
    The discussion below gives a brief overview of the State's 
``assignments'' to EPA, followed by a description of promulgated or 
pending Federal controls.6 Additional information on EPA's 
national controls may be found at EPA's mobile source homepage 
(www.epa.gov/omswww). More details on California's own mobile source 
programs may be found in section I.E.1, and at CARB's homepage 
(www.arb.ca.gov/msprog).
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    \6\ Although EPA determined that the Federal assignments were 
not an approvable portion of the 1994 ozone SIP, EPA has 
nevertheless taken action to regulate most of these sources under 
the authority provided in the CAA.
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    a. Heavy-Duty Onroad Vehicles. Measure M6 of California's 1994 
ozone SIP calls for adoption by EPA of a national standard for heavy-
duty diesel vehicles. CARB assumed that the NOX standard 
would be 2.0 grams per brake horsepower-hour (g/bhp-hr) and would be 
implemented starting in 2004.
    Both EPA and CARB have issued a 2.4 g/bhp-hr combined emission 
standard for NOX and nonmethane hydrocarbons (NMHC) for 
model year 2004 and later heavy-duty diesel engines used in trucks and 
buses.7 The new standards represent a 50 percent reduction 
in NOX from the 1998 and later model year NOX 
standard. EPA and CARB settlement agreements with manufacturers of 
heavy-duty vehicles and engines require early introduction of the 2004 
engines beginning in October 2002. This settlement is discussed in 
section I.B.2.h, below. Finally, for the remaining heavy-duty on-road 
categories (i.e., the otto-cycle engines), EPA currently intends to 
propose within the next 60 days a stringent NOX plus NMHC 
emission standard effective in the 2004 model year. EPA expects to take 
final action on this proposal by the end of 1999.
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    \7\ The standard also allows manufacturers the option of 
certifying to a 2.5 g/bhp-hr NOX plus NMHC standard, with 
a limit of 0.5 g/bhp-hr on NMHC.
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    b. Diesel Nonroad Engines. California's Measure M10 calls for 
adoption by EPA of a national standard for off-road diesel equipment. 
CARB proposed that the NOX emission standard would be 2.5 g/
bhp-hr and would be implemented starting in 2005.
    From 1994 through 1998, EPA has issued standards for most 
categories of nonroad diesel engines, covering diverse equipment 
applications including farm tractors, bulldozers, road graders, 
excavators, forklifts, logging equipment, and portable generators. The 
standards are progressively phased in over the period 1996 through 
2008, depending on engine type and size and the stringency of the 
standard. The new controls will reduce emissions by as much as two-
thirds.
    c. Industrial Equipment. Measure M12 provides for adoption by EPA 
of a national standard for off-road equipment rated between 25 and 175 
horsepower (hp), and fueled with gasoline or liquid petroleum gas 
(LPG). CARB proposed that the standard would reduce NOX 
emissions by at least 50 percent and hydrocarbon (HC) emissions by 75 
percent.
    In October 1998, CARB adopted new emission standards for spark-
ignition engines above 25 hp. These engines are used in forklifts, 
airport ground service equipment, sweepers, generators, compressors, 
and other industrial applications, as well as recreational equipment, 
such as go-carts, all-terrain vehicles, and snowmobiles. The CARB 
controls will reduce NOX and HC emissions by over 65 percent 
from all spark-ignition engines in 2010.
    On February 8, 1999, EPA issued a proposed finding under CAA 
section 213(a) that large spark-ignition engines cause or contribute to 
air pollution. If EPA finalizes this determination, EPA must propose 
regulations for such engines by September 28, 2000, and EPA must issue 
final regulations by September 28, 2001, in order to comply with a 
consent decree.8 While it is not possible to estimate with 
precision the emission reduction benefits from this rulemaking, the 
standards might be comparable to CARB's, although the compliance 
schedules may be different.
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    \8\ Under a June 9, 1998 modification to the September 23, 1993 
Partial Consent Decree in Sierra Club v. Browner (D.D.C., No. 93-
0124 (NHJ)), EPA has until September 29, 2000 to make a final 
determination that large gasoline engines do cause or contribute to 
air pollution within the meaning of CAA section 213(a)(3).
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    d. Marine Vessels. Measure M13 assumes adoption of national and 
international standards that will reduce NOX emissions from 
new ocean-going marine engines by 30 percent. CARB assumed some ambient 
air quality contributions from movement of the shipping channel further 
from shore. Finally, M13 also assigns to EPA responsibility for issuing 
standards for new marine diesel engines used in vessels operating 
primarily in domestic waters, to reduce NOX emissions by at 
least 65 percent.
    On October 23, 1998, EPA issued final regulations for marine diesel 
engines rated less than 37 kilowatts (50 hp). EPA issued proposed 
regulations for new compression ignition (CI) marine engines rated at 
or above 37 kilowatts on December 11, 1998. Under the terms of a 
consent decree, EPA must issue the final regulations by November 23, 
1999.9 These regulations will apply to new engines used for 
propulsion and auxiliary power on commercial vessels in a variety of 
marine applications, including fishing boats, tug and towboats, 
dredgers, coastal cargo vessels, and ocean-going vessels. The proposed 
regulations, if finalized, would apply NOX limits that will 
reduce emissions nationally by approximately one-third.10
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    \9\ Under an October 6, 1997 modification to the September 23, 
1993 Partial Consent Decree in Sierra Club v. Browner (D.D.C., No. 
93-0124 (NHJ)), EPA has until November 23, 1999, to take final 
action on the EPA's marine vessel regulations, proposed in August 
29, 1997 and supplemented with a December 11, 1998 proposal. Under a 
November 30, 1998 modification to the same consent decree, EPA has 
until November 23, 1999 to issue a supplemental proposal for 
recreational diesel-fueled marine engines and until October 31, 2000 
to take final action on this supplemental proposal.
    \10\ The long life span of these engines delays the full 
benefits of the regulations. EPA's estimate of national emission 
inventory impacts is a 10 percent decrease in 2010, 28 percent in 
2020, and 34 percent in 2030.
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    In addition, the International Maritime Organization (IMO) has 
adopted emission limits for all marine diesel engines rated above 130 
kilowatts (kw) ocean-going vessels. These limits are contained in 
Regulation 13 of Annex VI of the International Convention on the 
Prevention of Pollution from Ships (MARPOL), which was adopted at 
Diplomatic Conference on September 26, 1997. The Annex will enter into

[[Page 30279]]

force, and the NOX limits will be enforceable, twelve months 
after fifteen countries, the combined merchant fleets of which 
constitute not less than fifty per cent of the gross tonnage of the 
world's merchant shipping, have ratified it. Because this may take 
several years, Regulation 13 was designed to ensure that benefits 
associated with the NOX limits begin to accrue as early as 
possible. Specifically, the Annex VI NOX limits will apply 
to any new marine diesel engines installed on a ship constructed on or 
after January 1, 2000, and to any marine diesel engine that undergoes a 
major conversion 11 on or after January 1, 2000. By ensuring 
that the NOX limits will be enforceable back to these 
engines and vessels once the Annex goes into force, ship owners and 
engine manufacturers are expected to comply with the requirements 
beginning January 1, 2000. Nevertheless, due to the very long lives of 
these engines, the full benefits of the MARPOL standards may not be 
realized until 2030. For this reason, and because many vessels serving 
the Ports of Long Beach and Los Angeles already meet the Annex VI 
standards, EPA and CARB expect that the MARPOL Annex VI NOX 
limits will only contribute minimal SIP reductions in the South Coast 
by 2010. More meaningful reductions would be achieved by a further 
strengthening of the MARPOL NOX limits, and the 1997 
Conference adopted a resolution that would permit review of those 
limits at five year intervals after the entry into force of the Annex. 
This may not happen for several years, however, and it may be necessary 
to find a way to encourage the IMO to review these important emission 
limits before that time.
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    \11\ ``Major conversion'' is defined in Regulation 13 of Annex 
VI as meaning an engine that is replaced by a new engine built on or 
after January 1, 2000; is substantially modified; or whose maximum 
continuous rating is increased by more than 10%.
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    Under the PCP, EPA has held a series of stakeholder meetings to 
discuss strategies to reduce pollution associated with the marine 
vessel sector. Three workgroups were formed to focus on deep sea 
vessels, harborcraft, and port infrastructure.
    Because of questions regarding the costs and the benefits of moving 
the shipping channel, members of the deep sea vessel workgroup signed 
an MOA to fund a $400,000 tracer study in 1997 to compare onshore 
emissions under the current and proposed alternative shipping channel. 
Participants include EPA, CARB, SCAQMD, Navy, the shipping industry, 
and the ports. This complex study has not yet been finalized. The 
working group is also reviewing draft results from a study contracted 
by EPA to assess the benefits of future emission standards and 
alternative strategies, including strategies to reduce ship speed and, 
as a consequence, NOX emissions from the vessels. Finally, 
CARB is leading a technical workgroup tasked with evaluating technical 
issues associated with two alternative operational strategies for 
ocean-going vessels, and issuing a report by the end of 1999.
    The harborcraft workgroup has explored the possibility of an MOU, 
under which the major tug operators might agree to a voluntary 20 
percent reduction in NOX emissions. In 1997 EPA provided 
$350,000 to the SCAQMD to help fund a tug retrofit demonstration 
project. The project demonstrated the feasibility of a low-
NOX diesel engine capable of emitting at or below 5.5 g/bhp-
hr. Retrofits such as this may be subsidized under the Carl Moyer 
Memorial Air Quality Standards Attainment Program, a $25 million clean 
air measure enacted by the State of California in 1998. The State also 
will receive $20 million in fines as a result of the settlement with 
heavy-duty engine manufacturers for excess (off-cycle) emissions; some 
of these funds may also be directed toward subsidies for cleaner 
engines.
    The Ports of Los Angeles and Long Beach have recently completed a 
draft MOU on emission reductions from transportation infrastructure 
improvements at the ports. These improvements have been accomplished in 
recent years or will be completed over the next several years, and they 
were generally not assumed in the 1994 ozone SIP. The port 
modernizations will typically reduce truck emissions following 
extension of the rail lines to the docks. Other infrastructure 
improvements include road/rail grade separation projects, improved 
navigational channels, and the Alameda Transportation Corridor Project.
    e. Locomotives. Measure M14 assumes a two-thirds reduction in 
locomotive NOX emissions by 2010 from the combination of 
national locomotive standards and a clean locomotive fleet program in 
the South Coast.
    On April 16, 1998, EPA issued regulations for new and 
remanufactured locomotives originally manufactured after 1972. The 
regulations take effect in 2000 and will be fully phased in by 2005. 
When full benefits from the standards are realized, the new standards 
are expected to reduce NOX emissions by two-thirds and HC 
and PM emissions by 50 percent. In order to accelerate benefits and 
thereby achieve the SIP's 2010 emission reduction targets, California 
and Class I freight railroads operating in the South Coast (i.e., Union 
Pacific and Burlington Northern/Santa Fe) entered into an agreement for 
a railroad fleet average emissions program (Memorandum of Mutual 
Understandings and Agreements, South Coast Locomotive Fleet Average 
Emissions Program, July 1998). In a Statement of Principles jointly 
signed with CARB and the Class I railroads on May 14, 1997, EPA has 
reserved its authority, in the event that the agreement fails to attain 
its identified emission reductions, to assure that the reductions 
called for in the agreement are achieved from the railroad sector and/
or, if necessary, from other national transportation sources.
    f. Aircraft. Measure M15 calls for EPA to adopt commercial aircraft 
engine standards that are 30 percent more stringent than existing 
standards for VOC and NOX emissions.
(1) Emission Standards
    Due to the international nature of the aviation industry, the 
International Civil Aviation Organization (ICAO) has been the forum for 
establishing international commercial aircraft engine standards. On May 
8, 1997, EPA issued regulations reflecting the most recent standards 
adopted by the ICAO's Committee on Aviation Environmental Protection 
(CAEP). While these standards represent a 20 percent reduction from the 
previous ICAO limits for NOX issued in 1981, no additional 
emission reductions are anticipated, since virtually all new commercial 
aircraft already are equipped with engines meeting the ICAO standards. 
ICAO is not expected to issue new standards until early 2001.
(2) Voluntary Agreement To Reduce Emissions From Ground Service 
Equipment (GSE)
    EPA, CARB, SCAQMD, the Air Transport Association (ATA) and its 
member airlines, the Federal Aviation Administration (FAA), local 
commercial airports, environmental groups, and other stakeholders have 
met during the Public Consultative Process to identify ways to achieve 
additional reductions from the commercial aviation community. ATA is 
drafting an MOU to achieve these reductions at the five major 
commercial airports in the South Coast through use of cleaner GSE than 
otherwise required by applicable emission standards. When implemented, 
the MOU would yield small but important emission reductions through 
options including increased fleet turnover, greater use of engines 
employing alternative fuels, and electrification.

[[Page 30280]]

(3) Other Voluntary Initiatives
    On March 24, 1998, EPA and FAA signed an agreement to coordinate 
environmental matters regarding aviation. Among other measures, EPA and 
FAA agreed to develop a voluntary engine emission kit retrofit program 
and encourage the adoption of the voluntary program by the aviation 
community. Since the execution of the agreement, the focus of the 
voluntary process has broadened to consider a wider range of possible 
options for emission reductions from aircraft and at airports. The EPA-
FAA agreement includes the following provision: ``If the voluntary 
program is not successful, the parties agree to consider other 
mechanisms within the authorities of the respective agencies to achieve 
implementation of retrofit technologies in its fleet.''
    ICAO's CAEP has also established an Emissions Technical Issues 
Working Group with subgroups to develop: (1) best operating practices 
to reduce emissions from aircraft, GSE, and auxiliary power units 
(APUs); (2) market-based options (caps, charges, etc.) to provide 
incentives for further reductions; and (3) approaches to secure air 
quality benefits from improved air traffic management and airport 
planning.
    Beginning in 1998, EPA, FAA, and Department of Defense have been 
working with industry and environmental groups in this country to 
reduce pollution levels by means of advanced air traffic management 
systems and related technologies.
    EPA, SCAQMD, and the City of Los Angeles have worked with the 
Budget rental car agency to establish at LAX in December 1998 the first 
electric vehicle rental options in the country. Through cooperative 
efforts with the SCAQMD and clean-fuel stakeholders, LAX and other 
airports in the area have established other important programs for use 
of clean alternative fuels in shuttles and delivery vehicles.
    EPA has provided grants to support the Clean Airport Partnership. 
Among other activities, the partnership holds national airport summit 
meetings to find ways to reconcile airport growth and environmental 
progress.
(4) Research to Develop Cleaner Aircraft Engines
    In the fall of 1998, EPA and the National Aeronautics and Space 
Administration (NASA) signed an MOA to formalize working agreements on 
aeronautical research and technology. NASA is continuing to explore the 
potential for additional emission reductions that could be achieved 
from technological improvements in the design of new and rebuilt 
commercial aircraft engines.
    g. Marine Pleasurecraft. Measure M16 assumes that EPA will issue 
national standards to reduce HC emissions from marine pleasurecraft by 
75 percent.
    EPA has issued standards for recreational marine 2-stroke outboard 
engines and personal watercraft (such as jet skis), effective July 
1996. The standards are phased in over a 9-year period to achieve a 75 
percent reduction in HC. EPA has begun rulemaking to set emission 
limits for recreational 4-stroke sterndrive and inboard engines. These 
rules, if finalized, would establish standards for both gasoline and 
diesel recreational marine engines. However, the final implementation 
schedule for any such standards may not allow for rapid enough fleet 
turnover to accomplish all of the remaining 2 tpd of ROG emission 
reductions targeted by M16.
    h. Additional Reductions beyond the Federal Assignments.
(1) Heavy-Duty Diesel Off-Cycle Settlement
    In late 1998, EPA and CARB announced settlements of enforcement 
cases against manufacturers of heavy-duty diesel engines.12 
Among the settlement provisions were agreements by the manufacturers to 
introduce nationwide in October 2002, rather than 2004, engines meeting 
the 2.4 g/bhp-hr combined NOX and NMHC standard, discussed 
in section I.B.2.a., above. CARB assumes that 25 percent of vehicle 
miles traveled (VMT) by heavy-duty diesel vehicles in the South Coast 
in 2010 will be from out-of-state vehicles. As a result, the early 
introduction of trucks meeting the new national standard will 
contribute emission reductions toward attainment of the ozone standard.
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    \12\ On October 22, 1998, EPA and CARB announced settlement of 
enforcement cases brought against Caterpillar, Cummins, Detroit 
Diesel, Volvo, Mack Trucks/Renault and Navistar. These manufacturers 
had equipped their engines with defeat devices that advanced the 
fuel injection timing when vehicles were driven at steady highway 
speeds, thereby improving fuel economy at the expense of increased 
NOX emissions. The settlement also involves civil 
penalties and agreements by the manufacturers to provide over $100 
million in funding for environmental projects either identified in 
the consent decrees or awarded to project applicants. California 
will receive 25 percent of the penalty funds and 20 percent of the 
project funds collected in the joint enforcement actions.
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(2) National Tier 2 Motor Vehicle Standards
    In November 1998, CARB adopted more stringent standards for light-
duty cars and trucks and medium-duty vehicles up to 14,000 lbs. gross 
vehicle weight, as part of California's Low-Emission Vehicle (LEV) 
regulations. These standards, known as LEV II, were primarily intended 
to reduce NOX emissions, especially from sport utility 
vehicles and light trucks. EPA is initiating rulemaking to promulgate 
new ``Tier 2'' national vehicle standards that are comparable to 
California's LEV II program. If finalized, EPA's standards would 
provide benefits in the South Coast not anticipated in the 1994 ozone 
SIP, by reducing the emissions of vehicles that have migrated into the 
area from out of the state.13 The ozone SIP assumes that 
230,000 vehicles in the categories affected by the Tier 2 standards 
will travel 7.8 million miles in the South Coast in 2010.
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    \13\ Some additional benefits may be associated with future EPA 
regulations restricting sulfur in gasoline, since the cleaner 
gasoline would increase the durability of catalytic converters.
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C. Remaining Shortfall

    As shown in Table 1 below, CARB and EPA currently estimate that 
final or pending Federal measures will achieve approximately the 
following emission reductions in the South Coast in 2010: 94 tpd 
NOX and 39 tpd VOC. This leaves a projected shortfall of 
approximately 15 tpd NOX and 8 tpd VOC in the attainment 
demonstration for the South Coast, based on emission factors, models, 
and inventories consistent with those used in the 1994 ozone SIP.

                                           Status of Federal Measures
                                    [Tons per Day in the South Coast in 2010]
----------------------------------------------------------------------------------------------------------------
                                                            Assignment                   Achieved/pending
                     Measure                     ---------------------------------------------------------------
                                                        NOX             ROG             NOX             ROG
----------------------------------------------------------------------------------------------------------------
M6--HD Diesel Onroad Vehicles...................              16               2              16               2

[[Page 30281]]

 
M10--Diesel Nonroad.............................              44               5              41               9
M12--Industrial Equipment \1\...................              13              25               6              18
M13--Marine Vessels.............................               9  ..............               2  ..............
M14--Locomotives................................              23  ..............              23  ..............
M15--Aircraft...................................               4               3  ..............  ..............
M16--Pleasure Craft.............................  ..............              12  ..............              10
                                                 ---------------------------------------------------------------
    Total.......................................             109              47              88              39
National Tier 2 Standards \1\...................  ..............  ..............               4  ..............
Heavy-Duty Settlement...........................  ..............  ..............               2  ..............
                                                 ===============================================================
    Grand Total.................................             109              47              94              39
                                                 ---------------------------------------------------------------
    Shortfall...................................  ..............  ..............              15               8
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\1\ The rulemakings for these standards have not been completed and, therefore, the reduction numbers are
  projections.

    Much of the shortfall is due to the State's expectation that EPA 
would issue stringent standards for commercial aircraft engines and 
ocean-going vessels, and that turnover in these engines would be rapid 
enough to achieve substantial reductions by 2010. As noted above, 
emissions standards for these categories have been established 
internationally through organizations within the United Nations. 
Unfortunately, the existing standards set by ICAO and the IMO will not 
achieve significant reductions by 2010 from commercial aircraft and 
ocean-going vessels, particularly due to the long lifespan of these 
engines.
    There are also small shortfalls associated with M10 (Diesel 
Nonroad) and M16 (Pleasurecraft), and expected from forthcoming EPA 
regulations for M12 (Industrial Equipment). This would result if the 
national regulations establish standards or compliance schedules less 
aggressive than CARB had assumed.

D. EPA Proposed Consent Decree and Settlement Agreement

    When EPA took final action to approve the 1994 ozone SIP, EPA 
expected to complete the PCP in June 1997. In lieu of approving the 
Federal measure assignments, the final action approving the SIP 
included commitments by EPA to undertake rulemaking at the PCP 
conclusion to issue any controls that were determined to be appropriate 
for EPA. EPA approved California's commitment to take the following 
actions as appropriate after the PCP: (1) to revise the South Coast 
attainment demonstration by December 31, 1997, to reflect the results 
of the PCP; and (2) to issue regulations by December 31, 1999, to 
accomplish those emission reductions determined to be appropriate for 
CARB.
    Difficult issues associated with aviation and shipping strategies 
have required more time to resolve than EPA initially anticipated, and 
EPA has not yet concluded the PCP. In 1998, the Coalition for Clean 
Air, Natural Resources Defense Council, and Communities for a Better 
Environment amended a complaint against EPA originally filed in 1997 
(Coalition for Clean Air, et al. vs. SCAQMD, CARB, and USEPA, No. CV 
97-6916 HLH (C.D. CA.)). The amended complaint sought relief against 
EPA for failing to adopt Measure M13 (Marine Vessels) and Measure M15 
(Aircraft) or substitutes with greater or equivalent emissions, failing 
to conclude the PCP in June 1997, and failing to determine the 
respective obligations of EPA and the State as to the additional 
emission reductions needed.
    Under a proposed consent decree with the environmental plaintiffs, 
EPA has now committed to conclude the PCP. The proposed settlement was 
signed by all parties and lodged with the Court on November 13, 1998, 
in the form of a stipulation, consent decree, and settlement agreement. 
EPA issued a notice of the pending settlement on December 9, 1998 (63 
FR 67879), consistent with CAA section 113(g). Parties filed a motion 
to enter the agreement on May 10, 1999.
1. Consent Decree
    The proposed consent decree includes the following EPA commitments:
    1. EPA shall, pursuant to the Clean Air Act and 40 CFR 52.238, 
conclude the South Coast mobile source public consultative process by 
determining by July 1, 1999:
    a. What, if any, Volatile Organic Compounds (``VOC'') and Nitrogen 
Oxides (``NOX'') mobile source controls, including 
associated emissions reductions, are needed to attain the 1-hour ozone 
National Ambient Air Quality Standard (``NAAQS'') in the South Coast 
Air Basin by no later than November 15, 2010 and are appropriate for 
EPA to promulgate;
    b. EPA's rulemaking schedule for the controls identified in 
subparagraph 1(a). In determining such schedule, EPA will attempt to 
propose as many such measures as feasible by no later than December 31, 
2000 and to promulgate final measures by no later than December 31, 
2001;
    c. What, if any, VOC and NOX mobile source emission 
reductions are needed to attain the 1-hour ozone NAAQS in the South 
Coast Air Basin by no later than November 15, 2010 and are appropriate 
for the State of California to achieve through enforceable measures; 
and
    d. The schedule for the State to submit to EPA a revised 
demonstration to attain the 1-hour NAAQS in the South Coast Air Basin 
by no later than November 15, 2010.
    2. 40 CFR 52.220(c)(235)(I)(A)(1) contains a State commitment to 
submit control measures to achieve emission reductions determined to be 
appropriate, if any, by December 31, 1999. However, prior to July 1, 
1999, EPA will discuss with the State whether the deadline in such 
commitment is still appropriate.
    EPA is proposing to take the actions described in Section II of 
this document to comply with these provisions in the pending consent 
decree.

[[Page 30282]]

2. Settlement Agreement
    Accompanying the consent decree is a proposed settlement agreement, 
in which EPA agrees to undertake various additional activities as part 
of its efforts to ensure that the Federal government does its share in 
helping to solve the ozone problem in the South Coast. The proposed 
settlement agreement commits EPA to the following specific actions. The 
terms of the settlement agreement are reproduced for informational 
purposes and are not proposed for public comment, although EPA does 
invite suggestions from the public on the best ways for the Agency to 
implement its commitments.
    a. Federal Agencies. EPA Region 9 will, in consultation with the 
General Services Administration (GSA) and the Department of Energy 
(DOE), promote the purchase and use of low-emitting motor vehicles and 
other emission reduction and pollution prevention activities by Federal 
agencies located in the South Coast. With respect to the purchase of 
low-emitting motor vehicles, EPA will, in consultation and coordination 
with GSA and DOE, promote efforts of Federal agencies located in the 
South Coast to meet or exceed the alternative-fuel vehicle purchase 
requirements contained in the Energy Policy and Conservation Act and 
Executive Order 13031, including the requirements that, starting on 
July 1, 1999 and thereafter, at least 75 percent of the new vehicle 
purchases by the Federal agencies for use in the South Coast be 
alternative-fueled vehicles and that all Federal agencies located in 
the South Coast take steps to maximize the emission reductions achieved 
under this program.
    b. Aircraft, Airport, Ocean-Going Vessels, and Ports. EPA will 
continue to provide forums and staff and management support for 
negotiating agreements to achieve feasible reductions in the South 
Coast from these categories, through operational strategies. EPA will 
also continue to work with lead Federal agencies negotiating 
international controls on aircraft engines and ocean-going vessels to 
achieve the greatest feasible emissions reduction benefits. Whenever 
possible, EPA will involve CARB, SCAQMD, and the environmental groups 
in these activities. EPA will provide to the public information on 
actions taken by the airline industry pursuant to the FAA-EPA 
agreement, and the emissions reductions achieved by these actions, and 
will involve the public, as feasible and appropriate, in the 
development and implementation of future agreements on voluntary 
retrofit programs and other voluntary programs. Within 90 days of 
issuing the final rulemaking on marine vessel engines, EPA will 
complete an assessment of the feasibility of establishing incentive 
programs designed to increase the number of lower emitting engines in 
fleets which operate exclusively in the South Coast.
    c. National Standards for Onroad Heavy-Duty Diesel-Cycle Engines. 
During the public comment period following issuance of the proposed 
1999 review to reassess the appropriateness of the year 2004 HDDV 
standards, EPA will hold a public meeting in the Los Angeles area to 
present information on the impacts of the HDDV standards on the South 
Coast and any measures available and consistent with the Clean Air Act 
to assure the maximum emission reductions from the HDDV rule in the 
South Coast. Information from this meeting and other outreach efforts 
relating to the South Coast will be considered in the final 
determination made pursuant to the 1999 review.
    d. Retrofit requirements for onroad and nonroad vehicles and 
engines in the South Coast Air Basin. EPA will provide technical 
assistance to CARB to use the State's authority to require retrofitting 
of used nonroad engines. If CARB decides to provide incentives to 
stimulate retrofit rather than to require it, EPA will provide 
assistance in the State's efforts to comply with applicable Clean Air 
Act requirements for approval and credit of such measures.
    e. Concentration of Cleaner Preempted Engines (Farm and 
Construction Equipment <175hp) in the South Coast. EPA will undertake a 
study of the benefits and costs and legality of a Federal program, 
perhaps particularly in areas classified as extreme and severe for 
ozone, that would provide incentives for manufacturers to increase 
sales and use of equipment powered by engines certified and produced to 
meet the most stringent exhaust emission standards then applicable, 
e.g., through increased fleet turnover. EPA intends to complete the 
study by September 1, 1999. The study will estimate as precisely as 
possible the emission reduction benefits, anticipated compliance costs 
and other impacts (including energy and safety considerations) on 
vehicle/engine manufacturers and owners, and emissions and air quality 
impacts both within and outside the area(s) of concentration, including 
a specific analysis for the South Coast. If EPA finds that the 
incentive approach is feasible, needed, and does not impede progress in 
other parts of the country, EPA intends to undertake expeditious 
actions to implement the program, with the goal of ensuring emission 
reduction benefits at the earliest feasible date.

E. State Update to the 1994 Ozone SIP for the South Coast

    On May 20, 1999, CARB submitted a SIP update consisting of the 
following documents:
    (1) An update to the South Coast ozone SIP, reporting on 
implementation of CARB and EPA control measures, which California 
assumed in the 1994 ozone SIP for the South Coast; and
    (2) Executive Order G-99-037 committing the State: (a) to continue 
working with EPA to achieve the emission reduction commitments in the 
SIP for federal measures; (b) to adopt by December 31, 2000, and submit 
as a SIP revision, a revised attainment demonstration for the Federal 
1-hour ozone standard in the South Coast; and (c) to adopt by December 
31, 2001, control measures sufficient to achieve any additional 
emission reductions which are determined to be appropriate for CARB.

EPA found the submittal to be complete on May 20, 
1999.14
---------------------------------------------------------------------------

    \14\ 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).
---------------------------------------------------------------------------

1. Report on the Status of CARB Adoption of Control Measures in the 
1994 Ozone SIP Submittal
    CARB's report reviews the CARB and EPA accomplishments over the 
past four years in adopting controls which CARB committed to adopt or 
``assigned'' to the Federal government. The report also provides 
references to adopted CARB regulations and associated emission 
reductions which fulfill the majority of CARB's near-term obligations 
under the 1994 ozone plan. The report uses the 1994 ozone SIP's 
currency, i.e., the emissions factors and emissions inventories 
consistent with those used in the 1994 ozone SIP, rather than improved 
inventories. The report also uses the term Reactive Organic Gases (ROG) 
in lieu of the Federal terminology, VOC.
    The CARB update includes a table showing the status of CARB 
measures in the 1994 ozone SIP (``CARB Progress toward 1994 SIP 
Commitments'').

[[Page 30283]]



                                                        CARB Progress Toward 1994 SIP Commitments
                                                          [Tons per day in South Coast in 2010]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                          1994 SIP commitment        Adopted or planned             (Shortfall)
                                                                   --------------------------------         rule         -------------------------------
                 Source category and CARB measure                                                  ----------------------
                                                                          ROG             NOX       ROG        NOX              ROG             NOX
--------------------------------------------------------------------------------------------------------------------------------------------------------
Passenger Cars and Light-Duty Trucks:
    M1: Car Scrappage.............................................              14              11   0               0              (14)            (11)
    M2: Advanced Technology.......................................              10              15   7              25               (3)             10
Medium- and Heavy-Duty Gasoline Trucks:
    M3: Accelerated emission standard.............................               3              33   3              27                0              (6)
    M8: Emission standard.........................................               0               3   0               3                0               0
Heavy-Duty Diesel Trucks & Buses:
    M4: Cleaner engine incentives.................................               0               1   0               1                0               0
    M5: 2004 std plus early reductions............................               5              56   5              51                0              (5)
    New: Off-cycle diesel settlement..............................  ..............  ..............   0               5                0               5
Off-Road Diesel Equipment:
    M9: Emission standard--adopt 1999.............................               3              34   3              34                0               0
Off-Road Gasoline and LPG Equipment:
    M11: Emission standard........................................              23              12  25               7                2              (5)
Off-Road Motorcycles:
    New: Emission standard........................................  ..............  ..............  0.8              0.3            0.8             0.3
Marine Pleasurecraft
    New: Emission standard beyond M16.............................  ..............  ..............   4               0                4               0
Cleaner-Burning Gasoline:
    New: Combustion chamber deposits..............................  ..............  ..............   0              10                0              10
Small Off-Road Engines:
    Baseline: Changes to emission std.............................  ..............  ..............  (2)              0               (2)              0
Consumer Products:
    CP2: Mid-term measures........................................              36               0   9               0              (27)              0
Aerosol Paints:
    CP3: Aerosol paints standards.................................               7               0   5               0               (2)              0
CARB Settlement Commitments:
    New: Measures adopted by 12/99................................  ..............  ..............  12               0               12               0
    New: Measures adopted by 12/00................................  ..............  ..............  14               2               14               2
    New: Measures adopted by 12/01................................  ..............  ..............  16               0               16               0
                                                                   -------------------------------------------------------------------------------------
        Total for Measures due by 12/01...........................             101             165  101            165.3              0               0
                                                                                                    .8
--------------------------------------------------------------------------------------------------------------------------------------------------------

    The following discussion summarizes the State's update with respect 
to each CARB and EPA control measure identified in the State's 1994 
submittal.
    a. Light- and Medium-Duty Vehicles (State Measure M1--Accelerated 
Retirement of Light-Duty Vehicles, and State Measure M2--Improved 
Control Technology for Light-Duty Vehicles) Measure M1 called for 
accelerated retirement of cars and light trucks. CARB expects to need 
to pursue alternatives to the scrap program because of the lack of a 
funding mechanism. Measure M2 provided for additional emission 
reductions from cars and light trucks through more stringent emission 
standards beginning in 2004. The Low-Emission Vehicle II (LEV II) 
regulations implementing M-2 were adopted in November 1998 and achieved 
52 tpd of emission reductions: 7 tpd of ROG and 45 tpd of 
NOX. LEV II will provide 30 tpd of NOX reductions 
beyond the M-2 commitment, and the State is applying 20 tpd toward the 
long-term mobile source measure for advanced control technologies or 
techniques (known as the ``Black Box'').15 LEV II also left 
a 3 tpd ROG shortfall which must be made up through new measures.
---------------------------------------------------------------------------

    \15\ CAA section 182(e)(5) authorizes EPA to approve long-term, 
conceptual measures that rely on new technologies as part of the 
attainment demonstration for the South Coast, the only ozone 
nonattainment area classified as ``extreme'' under the CAA.
---------------------------------------------------------------------------

    In 1998, CARB adopted a new measure calling for tighter emission 
standards for on-road motorcycles to take effect beginning in 2000. The 
emission reductions associated with this measure were not included in 
the SIP, and provide additional reductions toward the CARB's overall 
commitments.
    b. Medium- and Heavy-Duty Gasoline Trucks (State Measure M3--
Accelerated Ultra-Low Emitting Vehicle Requirement for Medium-Duty 
Vehicles; State Measure M8--Heavy-Duty Gasoline Vehicles; Lower 
Emission Standards in California). Measure M3 was adopted in 1995, but 
a calculation error in the 1994 SIP resulted in a shortfall in the 
associated emission reductions even though the regulation achieved the 
performance standard specified in the SIP. Measure M8 for heavy-duty 
gasoline trucks was also adopted in 1995, and achieved the performance 
standard in the SIP.
    c. Heavy-Duty Trucks and Buses (State Measure M4--Heavy-Duty Diesel 
Vehicles; Early Introduction of 2.0 g/

[[Page 30284]]

bhp-hr NOX Engines in Fleets through Incentives; State 
Measure M5--Heavy-Duty Diesel Vehicles; additional NOX 
Reductions in California; State Measure M7--Accelerated Retirement of 
Heavy-Duty Vehicles). CARB is currently implementing M4 through the 
Carl Moyer program and the State is also working to secure continuing 
funding for the Carl Moyer program. Measure M5 required a California 
emission standard for heavy-duty diesel trucks and buses that would 
parallel national standards to be implemented in 2004. California 
adopted the national standard in 1998, achieving over 90 percent of the 
M5 commitment. This measure also assumed that California would 
implement the new national standard for diesel trucks and buses two 
years early (in 2002). However, based upon further analysis, CARB 
concluded that a California-only standard could harm the state's 
economy without providing any emission benefits if truck operators 
simply based their operations out of state. The 5 tpd of emission 
benefits associated with an early California-only standard will be 
achieved through the diesel off-cycle settlement, discussed above in 
section I.B.2.h.
    Measure M7 in the original 1994 SIP was replaced with measure M-17 
in 1998. Measure M-17 is a long-term commitment to reduce emissions 
from heavy-duty diesel engines through in-use compliance programs and 
possibly further incentives.
    d. Off-Road Equipment (State Measure M9--Off-Road Diesel 
Equipment--2.5 g/bhp-hr NOX Standard; State Measure M11--
Industrial Equipment, Gas & LPG). CARB is currently developing a 
regulation to implement measure M9 to reduce emissions from off-road 
diesel equipment. Under the terms of a 1996 agreement between CARB, 
EPA, and the engine manufacturers, emission standards for off-road 
diesel engines will phase-in beginning in 2001--four years earlier than 
expected in the SIP. This measure is in development and will be 
considered by the Board in 1999.
    Under measure M11, CARB adopted new emission standards for off-road 
equipment (like forklifts) powered by spark-ignition engines. The 
adopted regulation provides 2 additional tpd of ROG emissions, but 
falls 5 tpd short of the NOX commitment.
    In 1998, CARB modified existing emission standards for small off-
road engines, such as those used in lawn and garden equipment, to 
address technical feasibility concerns and higher than expected 
deterioration in emission performance. The modified regulations focus 
on reducing deterioration. However, because deterioration emissions 
were not included in the 1994 SIP inventory, there is no credit in 1994 
SIP currency for these reductions. The 2 tpd shortfall resulting from 
the regulatory changes must be made up through other strategies.
    In 1998, CARB also adopted new emission standards for marine 
pleasurecraft, such as outboard motors, personal watercraft, and small 
jet boats. In the process of improving the emission inventory, CARB 
found that emissions from marine pleasurecraft were much higher than 
assumed in the 1994 SIP. The new emission standards will achieve 
significant real emission reductions. However, because the marine 
pleasurecraft inventory in the 1994 SIP is modest, the emission 
reductions in SIP currency are relatively small. Nevertheless, the new 
marine pleasurecraft standards provide additional reductions in 2010. 
When the statewide SIP strategy is revised in 2000, CARB will update 
the marine pleasurecraft inventory and take full credit for the 
benefits of the new regulation.
    e. Mobile Source Fuels. With the introduction of cleaner-burning 
gasoline in 1996, gasoline refiners also introduced additives to reduce 
combustion chamber deposits. The decrease in combustion chamber 
deposits led to an unexpected additional decrease in NOX 
emissions. In 1998, CARB adopted regulations to require the use of such 
additives to ``lock in'' the NOX benefits already realized. 
The emission benefits of this regulation will decrease over time, 
providing 10 tpd of additional NOX reductions in the South 
Coast in 2010.
    f. Consumer Products and Aerosol Paints. The 1994 SIP called for 43 
tpd of ROG reductions from consumer products and aerosol paints 
measures to be adopted by 1997. Adopted measures thus far have achieved 
14 tpd of emission reductions, leaving a shortfall of 29 tpd. The State 
believes that additional reductions from consumer products are 
achievable, but at a lower level of effectiveness than called for in 
the SIP. As a result, CARB expects to look to other source categories 
to provide supplemental emission reductions in the near-term, and re-
evaluate the appropriate level for long-term commitments for consumer 
products in the next comprehensive SIP update in 2000.
    g. State Actions to Eliminate Near-Term Emissions Reduction 
Shortfall. The State's SIP update acknowledges that the total near-term 
reductions achieved fall short of CARB's SIP goal. In SIP currency, 
CARB has a near-term shortfall of 42 tpd of ROG and 2 tpd of 
NOX. The State presents the following description of its 
activities in the future to address this shortfall:

    We recognize our responsibility to eliminate these deficits so 
that the ozone standard can be attained by the statutory deadline. 
Over the next three years, ARB has agreed to adopt and implement 
measures to eliminate the near-term shortfall. Toward that end, we 
are planning to develop and propose a number of new regulatory 
measures in 1999 and 2000, and to take further steps to address the 
deficit.
    ARB staff has pledged to consider, develop, and propose 
regulations to reduce emissions associated with gasoline refueling, 
revisit medium- and heavy-duty gasoline truck standards, reduce the 
emission standard for heavy-duty buses, require the use of clean 
diesel fuel in locomotives, adopt a suggested control measure for 
architectural coatings, and pursue additional emission reductions 
from consumer products. Additional or alternate measures may be 
added or substituted so long as the aggregate emission reductions 
are achieved.

    EPA agrees with the State that this commitment reflects expeditious 
action to achieve the reductions required in the 1994 ozone SIP.
    h. Long-Term Measures. As discussed earlier, the SIP also commits 
CARB to achieve 102 tpd of ROG and 30 tpd of NOX in the 
long-term. The remaining long-term NOX commitment has been 
reduced to 10 TPD because 20 TPD of the additional NOX 
reductions from LEV II have been applied to the mobile source ``Black 
Box.''
    Among the long-term commitments is measure M17, a replacement 
measure submitted to EPA in 1998 to substitute for measure M7, 
accelerated retirement program for heavy-duty trucks. M17 relies on an 
expanded in-use compliance program, which may include in-use 
NOX testing plus supplementary incentives. The SIP submittal 
identifies an adoption date of 2004, with implementation beginning in 
2005. Under the terms of the State's settlement with the Natural 
Resources Defense Council, Coalition for Clean Air, and Communities for 
a Better Environment (Coalition for Clean Air, et al. vs. SCAQMD, CARB, 
and USEPA, No. CV 97-6916 HLH (C.D. CA.)), CARB agreed to accelerate 
the adoption of M17 to 2003, if technically feasible.
    The remaining long-term commitments were not specifically addressed 
in the lawsuit settlement. However, CARB will host a New Technologies 
Symposium in October 1999 to explore technologies capable of achieving 
zero and near-zero emissions, assess the feasibility of developing new 
regulations based on the technologies, and preview CARB's latest 
approaches

[[Page 30285]]

to making up the remaining SIP shortfalls.
2. CARB Review of Federal Actions That Contribute Emission Reductions
    The State's report notes that EPA has made significant progress 
toward reducing emissions from federal sources. The following section 
summarizes the State's review of progress toward the Federal measures 
for each source category.
    a. Heavy-Duty Diesel Trucks and Buses. The State notes that EPA's 
adoption of new national standards in 1997 achieved the Federal 
emission reductions from heavy-duty diesel vehicles in Measure M6 of 
the 1994 ozone SIP submittal. In addition, the State calculates an 
additional 2 tpd of NOX emission reductions from the 
settlement of the off-cycle enforcement action against diesel engine 
manufacturers.
    b. Off-Road Equipment. CARB states that EPA's 1998 national 
standards for diesel engines used in off-road equipment implements 
Measure M10 in the 1994 ozone SIP submittal. Under the terms of a 1996 
agreement between CARB, EPA, and the engine manufacturers, emission 
standards for off-road diesel engines will phase in beginning in 2001--
four years earlier than expected in the SIP. The adopted regulation 
provides 4 tpd of ROG beyond the reductions assumed in the 1994 ozone 
SIP submittal, but falls 3 tpd short in NOX reductions.
    c. Marine Pleasurecraft. The State's report indicates that the 1994 
ozone SIP submittal reflected EPA's original intent to control stern 
drive engines, but EPA's 1995 emissions standards did not do so, 
resulting in a shortfall of 2 tpd of ROG reductions compared to Measure 
M16.
    d. Locomotives. CARB concludes that EPA's stringent emission 
standards for new and re-built locomotives, coupled with CARB's 
Memorandum of Agreement with rail operators in the South Coast, are 
together expected to achieve the full emission reductions from Measure 
M14 in the 1994 ozone SIP submittal.
    e. Marine Vessels. The State observes that marine vessels are among 
the most challenging categories from which to obtain emission 
reductions because emission standards are established through an 
international process. CARB's report estimates that new IMO emission 
standards that take effect in 2000 will provide 1.1 tpd of 
NOX reductions. EPA's own emission standards for the captive 
fleet of diesel marine engines provide an additional 0.5 TPD of 
NOX reductions. Additional reductions of 7 TPD of 
NOX would still need to be achieved to meet the target in 
M13.
    f. Aircraft. Regarding Measure M15, aircraft emission standards 
have traditionally been set by ICAO. CARB states that, because EPA 
preferred to work through the ICAO process to pursue aircraft engine 
emission standards, the consultative process has focused on voluntary 
strategies to reduce emissions from airport ground access 
transportation and ground support equipment. EPA and FAA have also 
convened a stakeholder process with state air agencies, airlines, 
engine manufacturers, and other interested parties to try to develop a 
national voluntary agreement for emission reductions from aircraft and 
related sources. Since none of these approaches have been finalized, 
there are no creditable emission reductions from aircraft or airports 
yet.

3. CARB Recommendations for Near-Term Federal Initiatives

    Based on EPA's completed rulemakings and initiatives that CARB 
expects EPA to complete shortly, CARB concludes that the total 
reductions fall short of the emission reductions called for from 
Federal measures in the 1994 ozone SIP submittal by 8 tpd of ROG and 15 
tpd of NOX. The State expresses its belief that new measures 
under development or consideration by EPA, plus longer-term strategies, 
offer the opportunity for significant additional emission reductions 
from Federal sources to decrease or eliminate the remaining shortfall.
    CARB observes that, in the near-term, EPA could develop various 
strategies, which have the potential to help make up shortfalls. The 
State identified the following possible Federal initiatives as under 
development.
    a. Light- and Medium-Duty Vehicles. CARB discusses potential Tier 2 
standards for passenger cars and light trucks nationwide, which were 
not anticipated in the 1994 SIP. The State already credits EPA with 4 
tpd of NOX reduction in its shortfall analysis, and notes 
that additional reductions might be achieved if the heavier sport-
utility vehicles are subject to an interim NOX standard in 
the national program. In commenting on EPA's accompanying proposal to 
limit sulfur in gasoline to levels currently required in California, 
CARB notes that the sale of lower sulfur gasoline nationwide will 
contribute to the success of the State's LEV II program by allowing 
Californians to travel out of state without fear that dirtier gasoline 
will poison the catalytic converter or degrade the emission control 
system in their vehicles.
    b. Heavy-Duty Gas Trucks. CARB notes that new national emission 
standards for heavy-duty gasoline trucks might be issued in the near 
future, providing additional benefits beyond CARB's M8 commitment for 
reducing emissions from heavy-duty gasoline trucks.
    c. Off-Road Spark-Ignition Equipment. The State discusses reduction 
estimates from potential EPA regulations for off-road spark-ignition 
engines. CARB estimates an emission reduction shortfall of 7 tpd ROG 
and 7 tpd NOX, assuming that the regulations will be based 
on California's standards but would be implemented in 2004 instead of 
2001, due to EPA resource limitations.
    d. Marine Pleasurecraft. CARB references national emission 
standards for inboard engines used in marine pleasurecraft engines in 
1999, with implementation beginning in 2004. CARB discusses the 
possibility that in this rulemaking EPA may issue emissions standards 
for recreational diesel marine engines, in the same timeframe as the 
gasoline engines. The State believes that these sets of standards could 
remedy the 2 tpd shortfall in ROG reductions that resulted from the 
changes EPA made in its proposed marine pleasurecraft regulations when 
the rules were finalized in 1995.
    e. Marine Vessels. The State's update reports on the prospect of 
final national emission standards for marine diesel engines. The State 
discusses a technical workgroup that is evaluating technical issues 
associated with potential operational strategies for deep sea marine 
vessels (i.e., moving the shipping channel and/or speed reduction). The 
working group expects to complete its technical assessment of the two 
alternatives by the end of 1999. Assuming that an appropriate 
operational strategy is selected in 2000, the State estimates that 
implementation could begin in the 2000-2003 time frame depending on 
which strategy is chosen. Additional time may be needed depending on 
the level of coordination and involvement of other organizations such 
as the U.S. Navy, U.S. Coast Guard, and IMO. CARB also encourages EPA 
to work with the U.S. Coast Guard to encourage IMO to adopt more 
stringent second tier standards earlier than currently scheduled.
    f. Clean Diesel Fuel. CARB notes that EPA is beginning a process 
that may lead to new nationwide specifications in 2000 for fuel used in 
on-road vehicles and potentially off-road equipment as well. If 
promulgated, the State assumed that the Federal requirements for low-

[[Page 30286]]

sulfur diesel fuel would result in lower emissions from vehicles, 
trucks and locomotives that cross into California from other states.
    g. Federal Incentives. The State indicates that Federal financial 
incentives could support cost-effective programs that directly reduce 
emissions by accelerating the move to cleaner engines in school and 
transit buses, as well as mobile sources under federal control like 
locomotives, farm and construction equipment, harborcraft, ships, and 
aircraft. CARB believes that California's Carl Moyer program for heavy-
duty diesel engines provides a successful model. In partnership with 
CARB and local districts, EPA could target incentives to accelerate the 
replacement of the dirty engines that run for decades (20 to 40 years 
or more in some cases) with much cleaner models that reduce ozone-
forming emissions (plus air toxics) at a relatively low cost. The State 
believes that these types of incentives would be an ideal use for the 
proposed $200 million Clean Air Partnership Fund. According to the 
State, the Federal government could also take a stronger leadership 
role in accelerating the turnover of its own vehicle fleet to cleaner 
models, including expanded use of alternative-fueled vehicles.
4. CARB Recommendations for Longer-Term EPA Actions
    CARB encourages EPA to evaluate the strategies described below for 
technical feasibility, air quality benefits, and cost-effectiveness.
    a. Heavy-Duty Diesel Vehicle Emission Standards. As part of the 
1995 Statement of Principles, EPA, CARB, and engine manufacturers 
agreed to evaluate whether emission standards for heavy-duty diesel 
vehicles can be tightened beginning in 2008. Further lowering the 
NOX and particulate matter emission standards from heavy-
duty diesel vehicle in concert with cleaner diesel fuel would reduce 
emissions and significantly reduce public exposure to particulate 
diesel exhaust.
    b. In-Use Compliance Program for Heavy-Duty Diesel Vehicles. 
California's report encourages EPA to rely on CARB's ongoing work (SIP 
measure M17) to develop an in-use compliance program for NOX 
emissions from heavy-duty diesel vehicles as the basis for a national 
program.
    c. Aircraft Engines. As part of the effort to pursue all possible 
approaches to reducing airport and aircraft-related emissions, the 
State urged EPA to: work with engine manufacturers to encourage the 
development and commercialization of aircraft engines that emit less 
NOX; work with airlines on voluntary programs to achieve an 
increasingly cleaner aircraft fleet; work with FAA to pursue ICAO 
aircraft engine emission standards that, at a minimum, reflect the 
lowest emitting currently available aircraft engines; and pursue where 
necessary regulations to ensure emission reductions from aircraft 
operations.

II. Proposed EPA Action

A. Commitment To Eliminate Remaining Shortfall

    EPA, CARB, and affected stakeholders, including the South Coast Air 
Quality Management District (SCAQMD) and the environmental plaintiffs, 
have met during the PCP and have identified various approaches, 
particularly for the aviation and marine vessel categories, that have 
the potential to contribute additional reductions that could reduce or 
eliminate the remaining shortfall. The PCP participants generally 
agree, however, that it is not possible to identify specific emission 
reduction measures for these difficult source categories by the July 1, 
1999 deadline for concluding the PCP, since more time will be required 
to resolve technical issues relating to the benefits and feasibility of 
control options.
    Therefore, EPA and CARB intend to continue a focused cooperative 
effort to review these remaining questions and agree upon the best 
approach for achieving the relatively small balance of reductions still 
unaccomplished. CARB has committed to continue working with EPA and 
affected parties to achieve the emission reduction commitments in the 
SIP for Federal measures, and to adopt by December 31, 2001, control 
measures needed to achieve any additional emission reductions which are 
determined to be appropriate for CARB. EPA proposes to assume 
responsibility for identifying appropriate Federal measures, which 
would be adopted as expeditiously as possible but no later than 
December 31, 2001. Whenever feasible, any Federal measures would be 
proposed by December 31, 2000.
    EPA proposes to complete any actions identified as appropriate for 
EPA rulemaking under the Agency's enforceable commitment, promulgated 
at the time of the 1994 ozone SIP approval, ``to undertake rulemaking, 
after the South Coast mobile source public consultative process, to 
promulgate any VOC and NOX mobile source controls which are 
determined to be appropriate for EPA and needed for ozone attainment in 
the Los Angeles-South Coast Air Basin Area.'' 40 CFR 52.238. EPA 
believes that this approach is consistent with the EPA commitments 
under sections I.1(a) and I.1.(b) of the proposed consent decree, 
quoted above, although EPA notes that actions taken to reduce emissions 
might not be limited to controls on mobile sources and fuels.
    EPA is currently considering various options including the projects 
discussed in the overview of Federal Measures in section I.B.2, and 
CARB's suggested list of Federal initiatives in sections I.E.3 and 
I.E.4, that may achieve all or portions of the remaining reductions. 
Once EPA decides which options to pursue, the Agency will undertake 
formal rulemaking, with public notice and comment opportunities. EPA 
will inform and involve State and local stakeholders in this process.
    Finally, EPA intends to set expeditious implementation dates for 
any resulting national regulations consistent with the Agency's CAA 
authority, to help South Coast achieve, at a minimum reductions needed 
to reach attainment by 2010.

B. Approval of SIP Update

    EPA is also proposing to approve the update to the South Coast 
ozone SIP submitted by CARB on May 20, 1999. As noted above, the update 
consists of a report on the status of implementation of CARB's 
committal measures in the 1994 ozone SIP, along with a report on 
emission reductions from EPA national mobile source regulations, in the 
context of the South Coast ozone SIP attainment demonstration.
    As discussed above, EPA and CARB have agreed that controls will be 
identified and adopted by the appropriate agencies by December 31, 2001 
to eliminate the shortfall, currently estimated to be 8 tpd VOC and 15 
tpd NOX. CARB has made such an enforceable commitment as a 
replacement for the existing State commitment (40 CFR 52.220(c)(235)). 
CARB also committed to revise the South Coast ozone attainment 
demonstration by December 31, 2000. EPA proposes to approve Executive 
Order G-99-037, dated May 20, 1999, and submitted on May 20, 1999, 
which updates the timelines in Executive Order G-96-031. EPA believes 
that this approach is consistent with sections I.1.(c) and I.1.(d) of 
the proposed consent decree.
    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

[[Page 30287]]

relation to relevant statutory and regulatory requirements.

III. Administrative Requirements

A. Executive Order 12866

    The Office of Management and Budget (OMB) has exempted this 
regulatory action from Executive Order (E.O.) 12866, Regulatory 
Planning and Review.

B. Executive Order 12875

    Under Executive Order 12875, Enhancing the Intergovernmental 
Partnership, EPA may not issue a regulation that is not required by 
statute and that creates a mandate upon a State, local or tribal 
government, unless the Federal government provides the funds necessary 
to pay the direct compliance costs incurred by those governments, or 
EPA consults with those governments. If EPA complies by consulting, 
Executive Order 12875 requires EPA to provide to the Office of 
Management and Budget a description of the extent of EPA's prior 
consultation with representatives of affected State, local and tribal 
governments, the nature of their concerns, copies of any written 
communications from the governments, and a statement supporting the 
need to issue the regulation. In addition, Executive Order 12875 
requires EPA to develop an effective process permitting elected 
officials and other representatives of State, local and tribal 
governments ``to provide meaningful and timely input in the development 
of regulatory proposals containing significant unfunded mandates.'' 
Today's rule does not create a mandate on State, local or tribal 
governments. The rule does not impose any enforceable duties on these 
entities. Accordingly, the requirements of section 1(a) of E.O. 12875 
do not apply to this rule.

C. Executive Order 13045

    Protection of Children from Environmental Health Risks and Safety 
Risks (62 FR 19885, April 23, 1997), applies to any rule that: (1) is 
determined to be ``economically significant'' as defined under E.O. 
12866, and (2) concerns an environmental health or safety risk that EPA 
has reason to believe may have a disproportionate effect on children. 
If the regulatory action meets both criteria, the Agency must evaluate 
the environmental health or safety effects of the planned rule on 
children, and explain why the planned regulation is preferable to other 
potentially effective and reasonably feasible alternatives considered 
by the Agency. This rule is not subject to E.O. 13045 because it does 
not involve decisions intended to mitigate environmental health or 
safety risks.

D. Executive Order 13084

    Under Executive Order 13084, Consultation and Coordination with 
Indian Tribal Governments, EPA may not issue a regulation that is not 
required by statute, that significantly or uniquely affects the 
communities of Indian tribal governments, and that imposes substantial 
direct compliance costs on those communities, unless the Federal 
government provides the funds necessary to pay the direct compliance 
costs incurred by the tribal governments, or EPA consults with those 
governments. If EPA complies by consulting, Executive Order 13084 
requires EPA to provide to the Office of Management and Budget, in a 
separately identified section of the preamble to the rule, a 
description of the extent of EPA's prior consultation with 
representatives of affected tribal governments, a summary of the nature 
of their concerns, and a statement supporting the need to issue the 
regulation. In addition, Executive Order 13084 requires EPA to develop 
an effective process permitting elected officials and other 
representatives of Indian tribal governments ``to provide meaningful 
and timely input in the development of regulatory policies on matters 
that significantly or uniquely affect their communities.'' Today's rule 
does not significantly or uniquely affect the communities of Indian 
tribal governments. Accordingly, the requirements of section 3(b) of 
E.O. 13084 do not apply to this rule.

E. 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).

F. 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 this action 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 proposes to approve 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.

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Intergovernmental 
relations, Oxides of nitrogen, Ozone, Particulate matter, Reporting and 
recordkeeping requirements, Volatile organic compounds.

    Dated: May 26, 1999.
Felicia Marcus,
Regional Administrator, Region IX.
[FR Doc. 99-14317 Filed 6-4-99; 8:45 am]
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