[Federal Register Volume 65, Number 9 (Thursday, January 13, 2000)]
[Rules and Regulations]
[Pages 2046-2048]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 00-624]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[CA172-0203; FRL-6513-9]


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

AGENCY: Environmental Protection Agency (EPA).

ACTION: Final rule.

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SUMMARY: EPA is finalizing the approval of a revision to the California 
State Implementation Plan (SIP) proposed in the Federal Register on 
August 10, 1999. This revision concerns Kern County Air Pollution 
Control District (KCAPCD)--Rule 410.4, Surface Coating of Metal Parts 
and Products. This approval action will incorporate this rule into the 
federally approved SIP. The intended effect of approving this rule is 
to regulate emissions of volatile organic compounds (VOCs) according to 
the requirements of the Clean Air Act, as amended in 1990 (CAA or the 
Act). This revised rule controls VOC emissions from the surface coating 
of miscellaneous metal parts and products. Thus, EPA is finalizing the 
approval of this revision 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.

EFFECTIVE DATE: This action is effective on February 14, 2000.

ADDRESSES: Copies of the rule revisions and EPA's evaluation report for 
this rule are available for public inspection at EPA's Region IX office 
during normal business hours. Copies of the submitted rule revisions 
are available for inspection at the following locations:

Rulemaking Office (AIR-4), Air Division, U.S. Environmental 
Protection Agency, Region IX, 75 Hawthorne Street, San Francisco, CA 
94105;
Environmental Protection Agency, Air Docket (6102), 401 ``M'' 
Street, SW., Washington, D.C. 20460;
California Air Resources Board, Stationary Source Division, Rule 
Evaluation Section, 2020 ``L'' Street, Sacramento, CA 95812; and,
Kern County Air Pollution Control District, 2700 M Street, Suite 
302, Bakersfield, CA 93301.

FOR FURTHER INFORMATION CONTACT: Jerald S. Wamsley, Rulemaking Office, 
(AIR-4), Air Division, U.S. Environmental Protection Agency, Region IX, 
75 Hawthorne Street, San Francisco, CA 94105, Telephone: (415) 744-
1226.

SUPPLEMENTARY INFORMATION:

I. Applicability

    EPA is approving Kern County Air Pollution Control District 
(KCAPCD) Rule 410.4, Surface Coating of Metal Parts and Products for 
inclusion within the California SIP. This rule was submitted by the 
California Air Resources Board (CARB) to EPA on May 10, 1996.

II. Background

    On August 19, 1999 (see 64 FR 45216), EPA proposed to approve 
KCAPCD Rule 410.4, Surface Coating of Metal Parts and Products. KCAPCD 
Rule 410.4 was adopted and revised on March 7, 1996. In turn, the 
California Air Resources Board submitted this rule to EPA on May 10, 
1996. CARB submitted this rule in response to EPA's 1988 SIP-Call and 
the CAA section 182(a)(2)(A) requirement that nonattainment areas fix 
their reasonably available control technology (RACT) rules for ozone 
according to EPA guidance that interpreted the requirements of the pre-
amendment Act. A detailed discussion of the background for KCAPCD Rule 
410.4 and nonattainment areas is provided in the August 19, 1999 Notice 
Direct Final Rulemaking (NDFRM) (see 64 FR 45178).
    Having received a public comment on its August 19, 1999 direct 
final action to approve KCAPCD Rule 410.4, EPA removed this revision to 
the California SIP on November 8, 1999 (see 64 FR 60688). EPA will 
address this comment within this rulemaking.
    EPA evaluated KCAPCD Rule 410.4 for consistency with the 
requirements of the CAA and EPA regulations and EPA interpretation of 
these requirements as expressed in the various EPA policy guidance 
documents referenced in the NDFRM cited above. EPA has found that this 
rule meets the applicable EPA requirements. A detailed discussion of 
the rule provisions and EPA's evaluation has been provided in the 
August 19, 1999 NDFRM (see 64 FR 45178) and in the technical support 
document (TSD) available at EPA's Region IX office.

III. Response to Public Comments

    A 30-day public comment period was provided in the NPRM (see 64 FR 
45216). EPA received one comment

[[Page 2047]]

concerning KCAPCD Rule 410.4 from Canam Steel Corporation (CSC). Where 
KCAPCD Rule 410.4 sets a VOC coating emissions limit of 340 gram/liter 
for air dried metal parts and products, CSC suggests that Rule 410.4 be 
changed to allow structural steel fabricators to use a higher VOC 
content coating. CSC asserts that when dip coating is used to coat 
large joists and structural steel members, a higher VOC content and 
less viscous coating may result in less overall VOC emissions than Rule 
410.4's 340 gram per liter emissions limit.
    EPA Response: KCAPCD Rule 410.4's 340 gram/liter VOC emissions 
limit is consistent with the relevant California Determination of 
Reasonably Available Control Technology and exceeds EPA's Control 
Technique Guideline emissions limit of 420 grams/liter for the air 
dried coating of miscellaneous metal parts and products. Because 
KCAPCD's 340 gram/liter VOC emission limit is part of the California 
SIP, KCAPCD cannot raise and EPA cannot approve a higher VOC emissions 
limit without considering and addressing the anti-backsliding 
requirements of Sections 110(l) and 193 of the Clean Air Act. These 
sections of the Clean Air Act restrict EPA's ability to approve state 
actions that may weaken the California SIP.
    KCAPCD's adoption of the 340 gram/liter emissions limit and EPA's 
approval of this limit into the California SIP predates the March 7, 
1996 adoption described within EPA's August 19, 1999 proposal. EPA 
approved the 340 grams per liter VOC emissions limit into the 
California SIP on July 25, 1996 (see 61 FR 38571) after reviewing the 
April 6, 1995 adopted version of KCAPCD Rule 410.4. Only recently have 
other states and EPA been able to review CSC's studies and consider 
revising their SIPs (see 64 FR 32415, June 17, 1999).
    If Canam Steel Corp. wishes to pursue changes to KCAPCD Rule 410.4, 
EPA suggests that CSC present its studies to the KCAPCD and the CARB 
for consideration. Should California choose to amend the Rule 410.4, it 
must address Sections 110(l) and 193 of the CAA.

IV. EPA Action

    EPA is finalizing action to approve KCAPCD Rule 410.4--Surface 
Coating of Metal Parts and Products for inclusion into the California 
SIP. EPA is approving the submittal under section 110(k)(3) as meeting 
the requirements of section 110(a) and Part D of the CAA. This approval 
action will incorporate KCAPCD Rule 410.4 into the federally approved 
SIP. The intended effect of approving this rule is to regulate 
emissions of VOCs according to requirements of the CAA.

V. Administrative Requirements

A. Executive Order 12866

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

B. Executive Order 13132

    Federalism (64 FR 43255, August 10, 1999) revokes and replaces 
Executive Orders 12612, Federalism and 12875, Enhancing the 
Intergovernmental Partnership. Executive Order 13132 requires EPA to 
develop an accountable process to ensure ``meaningful and timely input 
by State and local officials in the development of regulatory policies 
that have federalism implications.'' ``Policies that have federalism 
implications'' is defined in the Executive Order to include regulations 
that have ``substantial direct effects on the States, on the 
relationship between the national government and the States, or on the 
distribution of power and responsibilities among the various levels of 
government.'' Under Executive Order 13132, EPA may not issue a 
regulation that has federalism implications, that imposes substantial 
direct compliance costs, and that is not required by statute, unless 
the Federal government provides the funds necessary to pay the direct 
compliance costs incurred by State and local governments, or EPA 
consults with State and local officials early in the process of 
developing the proposed regulation. EPA also may not issue a regulation 
that has federalism implications and that preempts State law unless the 
Agency consults with State and local officials early in the process of 
developing the proposed regulation.
    This rule will not have substantial direct effects on the States, 
on the relationship between the national government and the States, or 
on the distribution of power and responsibilities among the various 
levels of government, as specified in Executive Order 13132 (64 FR 
43255, August 10, 1999), because it merely approves a state rule 
implementing a federal standard, and does not alter the relationship or 
the distribution of power and responsibilities established in the Clean 
Air Act. Thus, the requirements of section 6 of the Executive Order 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 
Executive Order 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 Executive Order 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 affects 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. If the mandate is unfunded, 
EPA must 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 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 Executive 
Order 13084 do not apply to this rule.

E. Regulatory Flexibility Act

    The Regulatory Flexibility Act (RFA) generally requires an agency 
to conduct

[[Page 2048]]

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 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.

G. 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. A major rule cannot 
take effect until 60 days after it is published in the Federal 
Register. This rule is not a ``major'' rule as defined by 5 U.S.C. 
804(2).

H. National Technology Transfer and Advancement Act

    Section 12 of the National Technology Transfer and Advancement Act 
(NTTAA) of 1995 requires Federal agencies to evaluate existing 
technical standards when developing a new regulation. To comply with 
NTTAA, EPA must consider and use ``voluntary consensus standards'' 
(VCS) if available and applicable when developing programs and policies 
unless doing so would be inconsistent with applicable law or otherwise 
impractical.
    The EPA believes that VCS are inapplicable to this action. Today's 
action does not require the public to perform activities conducive to 
the use of VCS.

I. 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 March 13, 2000. 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, 
Incorporation by reference, Intergovernmental relations, Ozone, 
Reporting and recordkeeping requirements, Volatile organic compounds.

    Dated: December 7, 1999.
David P. Howekamp,
Acting Regional Administrator, Region IX.

    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 52.220 is amended by adding paragraph (c) (231)(i)(B)(6) 
to read as follows:


Sec. 52.220  Identification of plan.

* * * * *
    (c) * * *
    (231) * * *
    (i) * * *
    (B) * * *
    (6) Rule 410.4, adopted on June 26, 1979 and amended on March 7, 
1996.
* * * * *
[FR Doc. 00-624 Filed 1-12-00; 8:45 am]
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