[Federal Register Volume 70, Number 139 (Thursday, July 21, 2005)]
[Rules and Regulations]
[Pages 41963-41967]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 05-14388]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[R06-OAR-2005-NM-0001; FRL-7942-5]


Approval and Promulgation of Air Quality Implementation Plans; 
New Mexico; Albuquerque/Bernalillo County

AGENCY: Environmental Protection Agency (EPA).

ACTION: Final rule.

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SUMMARY: This action finalizes our approval of the State Implementation 
Plan (SIP) revisions submitted by the Governor of New Mexico on 
September 7, 2004. The submittal revises the second ten-year carbon 
monoxide (CO) maintenance plan for the Albuquerque/Bernalillo County, 
New Mexico area. The submittal also revises the relevant parts of the 
New Mexico Administrative Code (NMAC) including revisions to the 
General Provisions, Inspection and Maintenance (I&M) Program, and the 
contingency measures. We are finalizing approval of these revisions in 
accordance with the requirements of the Federal Clean Air Act (the 
Act).

DATES: This rule is effective on August 22, 2005.

ADDRESSES: The EPA has established a docket for this action under 
Regional Material in EDocket (RME) Docket ID No. R06-OAR-2005-NM-0001. 
All documents in the docket are listed in the RME index at http://docket.epa.gov/rmepub/, once in the system, select ``quick search,'' 
then key in the appropriate RME Docket identification number. Although 
listed in the index, some information is not publicly available, i.e., 
CBI or other information whose disclosure is restricted by statute. 
Certain other material, such as copyrighted material, is not placed on 
the Internet and will be publicly available only in hard copy form. 
Publicly available docket materials are available either electronically 
in RME or in hard copy at the Air Planning Section (6PD-L), 
Environmental Protection Agency, 1445 Ross Avenue, Suite 700, Dallas, 
Texas 75202-2733. The file will be made available by appointment for 
public inspection in the Region 6 FOIA Review Room between the hours of 
8:30 a.m. and 4:30 p.m. weekdays except for legal holidays. Contact the 
person listed in the FOR FURTHER INFORMATION CONTACT paragraph below to 
make an appointment. If possible, please make the appointment at least 
two working days in advance of your visit. There will be a 15 cent per 
page fee for making

[[Page 41964]]

photocopies of documents. On the day of the visit, please check in at 
the EPA Region 6 reception area at 1445 Ross Avenue, Suite 700, Dallas, 
Texas.
    The State submittal is also available for public inspection at the 
State Air Agency listed below during official business hours by 
appointment:
    Environmental Protection Agency, Region 6, Air Planning Section 
(6PD-L), 1445 Ross Avenue, Dallas, Texas 75202-2733.
    The City of Albuquerque, Environmental Health Department, One Civic 
Plaza, Albuquerque, NM 87102.

FOR FURTHER INFORMATION CONTACT: Mr. Alan Shar of the Air Planning 
Section (6PD-L), EPA Region 6, 1445 Ross Avenue, Dallas, Texas 75202-
2733 at (214) 665-6691, [email protected].

SUPPLEMENTARY INFORMATION:

Table of Contents

I. Background Information
    1. What actions are we taking in this document?
    2. Who submitted comments to us?
    3. What is our response to the submitted written comments?
    4. What areas in New Mexico will these rule revisions affect?
II. Final Action
III. Statutory and Executive Order Reviews

    In this document ``we,'' ``us,'' and ``our'' refer to EPA.

I. Background Information

1. What Actions Are We Taking in This Document?

    On April 14, 2005 (70 FR 19723) we proposed approval of revisions 
to the New Mexico SIP pertaining to the second ten-year CO maintenance 
plan for the Albuquerque/Bernalillo County, New Mexico area and its 
relevant parts of the NMAC including revisions to the General 
Provisions, I&M Program, the Oxygenated Fuels Program, and the 
contingency measures. In the April 14, 2005 Federal Register (70 FR 
19723), we stated that written comment must be received by May 16, 
2005. We received written adverse comments during the public comment 
period.
    On June 8, 2005 (70 FR 33363) we published the withdrawal of the 
direct final rule 70 FR 19702 due to the adverse comments received. A 
detailed rationale for our action is set forth in the direct final 
rule. See 70 FR 19702, and the Technical Support Document for further 
information. In the June 8, 2005, Federal Register (70 FR 33363) as 
well as the April 14, 2005 direct final rule we stated that we will 
summarize and respond to written comments received, and take final 
rulemaking action on the requested New Mexico SIP revision. In the June 
8, 2005, Federal Register (70 FR 33363), we cited two references as 
``71 FR 19723'' and ``71 FR 19702'' by mistake. The correct citations 
for those two references should have read ``70 FR 19723'' and ``70 FR 
19702'' instead. Today, we are correcting that error.
    Today, we are also summarizing and responding to written comments 
received and taking final rulemaking action on the April 14, 2005 (70 
FR 19723) proposal pertaining to the Albuquerque/Bernalillo County, New 
Mexico SIP revision. See sections 2 and 3 of this document for more 
information.

2. Who Submitted Comments to Us?

    We received written comments on the April 14, 2005 (70 FR 19723), 
proposed New Mexico SIP revision. The comments were submitted by 
Chevron and ConocoPhilips (the Commenters) during the public comment 
period.

3. What Is Our Response to the Submitted Written Comments?

    Our responses to the written comments concerning the April 14, 2005 
(70 FR 19723) proposal, New Mexico SIP revision are as follows:
    Comment #1: Chevron and ConocoPhillips (the Commenters) expressed 
their opposition to maintaining the 2.7 percent oxygenated fuel content 
requirement, for the period from November 1st through the end of 
February (Winter season) as a part of the second ten-year CO limited 
maintenance plan, within the Albuquerque/Bernalillo County, New Mexico 
area. Chevron submitted a chart indicating the downward trend of 
calculated CO concentrations in the area for the recent years to 
substantiate its position.
    Response to Comment #1: The Act assigns to the states initial and 
primary responsibility for formulating a plan to achieve the NAAQS. It 
is up to the state to prepare state implementation plans which contain 
specific pollution control measures. An examination of this SIP 
submittal reveals no record of the Commenters having provided input or 
submitted comments to the State or the Albuquerque Environmental Health 
Department (AEHD) during their rulemaking process. The EPA's 
responsibilities under the Act are qualitatively different from those 
of the state agency. The EPA is charged with reviewing and approving or 
disapproving the enforceable implementation plans prepared by states 
and other political subdivisions identified in the statute. It is not 
EPA's role to disapprove the State's choice of control strategies if 
that strategy will result in attainment or continued maintenance of the 
NAAQS, and meets all other applicable statutory requirements. See Union 
Electric v. EPA, 427 U.S. 246 (1976); Train v. NRDC 421 U.S 60 (1975). 
The EPA's role in reviewing SIP submittals is to approve state choices, 
provided that they meet the criteria of the Act. Federal inquiry into 
the reasonableness of state action is not allowed under the Act (see, 
Union Electric Co. v. EPA, 427 U.S. 246, 255-266 (1976); 42 U.S.C. 
7410(a)(2)). Under section 116 of the Act, with certain exceptions not 
relevant here, a State retains the right to adopt and enforce any 
requirement respecting control or abatement of air pollution, including 
more stringent emissions standards and limitations. The State has 
submitted information indicating that the administrative requirements 
of New Mexico law have been met. We can agree with the Commenters' 
statement that all CO emissions in the Albuquerque/Bernalillo County 
are not from mobile sources. However, the CO emissions inventory Table 
I of the April 14, 2005 (70 FR 19702) direct final rule indicates that 
more than 84% (398.14/473.34) of the CO emissions in the area are 
mobile source related. We can agree with the Commenters that the 
overall trend as shown in the chart, provided by the Commenters, 
indicates a downward trend for the calculated CO concentrations in the 
Albuquerque/Bernalillo County area for recent years. However, we 
consider this downward trend to be attributable to the success of 
control measures and implementation of enforceable air quality plans 
adopted by Albuquerque/Bernalillo County. Thus, removing the oxygenated 
fuel content requirement as requested by the Commenters (even if EPA 
had such authority which, as explained previously, it does not) could 
potentially cause CO concentrations in the area to increase. We believe 
that the measures adopted by the Albuquerque/Bernalillo County are 
adequate, and reflect a coherent way air planning and transportation 
have come together to address air quality issues in the area. For all 
of these stated reasons, we disagree with the Commenters's opposition 
to the existing program.
    Comment #2: Chevron states that on multiple occasions this past 
season the railroad was unable to deliver ethanol tank cars into their 
terminal when they were needed. Chevron also stated they experienced 
similar problems in their Phoenix and Las Vegas terminals, as well. In 
those instances, Chevron claims that they had to arrange to purchase 
and truck ethanol into their terminals to

[[Page 41965]]

ensure a continuous and reliable supply to the customers.
    Response to Comment #2: This comment is not relevant to today's 
rulemaking action. Various forms of the Oxygenated Fuels Program have 
been in place since 1988 in the area, and EPA approved the Program 
utilizing ethanol in 1993. Today's rulemaking only approves minor 
grammatical and typographical changes to the existing program; it does 
not change the substance of the program EPA approved in 1993. Chevron's 
concern about ethanol supply to meet the existing program, therefore, 
is not relevant to today's action.
    As noted previously, the State has the authority to include these 
measures under section 116 of the Act in its SIP. Again, comments 
concerning ethanol supply issues should have also been directed to the 
State. Therefore, we can not delete these measures from the SIP, if the 
State has adopted or wants to include them in its SIP.
    As far as Chevron's Albuquerque terminal operation is concerned, we 
believe that the delivery and on-time availability of ethanol scenarios 
described above are largely business strategy related matters rather 
than a CO maintenance issue. Such matters are best addressed through 
merchandise inventory preparations, factoring storage tank design/
capacity estimates, advance scheduling/planning, and forecasting 
considerations.
    This concludes our responses to the written comments we received 
during public comment period concerning the April 14, 2005 (70 FR 
19723), New Mexico proposed SIP revision.

4. What Areas in New Mexico Will These Rule Revisions Affect?

    These rule revisions affect all sources of air emissions operating 
within the Albuquerque/Bernalillo County, New Mexico area.

II. Final Action

    Today, we are finalizing approval of the CO limited maintenance 
plan and its relevant parts of the NMAC including revisions to the 
General Provisions (``Resolutions,'' ``Definitions,'' and 
``Interpretation''), I&M Program, the Oxygenated Fuels Program, and the 
contingency measures. We published the proposal for this approval on 
April 14, 2005 (70 FR 19723).

III. Statutory and Executive Order Reviews

    Under Executive Order 12866 (58 FR 51735, October 4, 1993), this 
action is not a ``significant regulatory action'' and therefore is not 
subject to review by the Office of Management and Budget. For this 
reason, this action is also not subject to Executive Order 13211, 
``Actions Concerning Regulations That Significantly Affect Energy 
Supply, Distribution, or Use'' (66 FR 28355, May 22, 2001). This action 
merely approves state law as meeting Federal requirements and imposes 
no additional requirements beyond those imposed by state law. 
Accordingly, the Administrator certifies that this rule will not have a 
significant economic impact on a substantial number of small entities 
under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.). Because 
this rule approves pre-existing requirements under state law and does 
not impose any additional enforceable duty beyond that required by 
state law, it does not contain any unfunded mandate or significantly or 
uniquely affect small governments, as described in the Unfunded 
Mandates Reform Act of 1995 (Pub. L. 104-4).
    This rule also does not have tribal implications because it will 
not have a substantial direct effect on one or more Indian tribes, on 
the relationship between the Federal Government and Indian tribes, or 
on the distribution of power and responsibilities between the Federal 
Government and Indian tribes, as specified by Executive Order 13175 (65 
FR 67249, November 9, 2000). This action also does not have Federalism 
implications because it does 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). This action 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. This rule also is not subject to Executive Order 13045 
``Protection of Children from Environmental Health Risks and Safety 
Risks'' (62 FR 19885, April 23, 1997), because it is not economically 
significant.
    In reviewing SIP submissions, EPA's role is to approve state 
choices, provided that they meet the criteria of the Clean Air Act. In 
this context, in the absence of a prior existing requirement for the 
State to use voluntary consensus standards (VCS), EPA has no authority 
to disapprove a SIP submission for failure to use VCS. It would thus be 
inconsistent with applicable law for EPA, when it reviews a SIP 
submission, to use VCS in place of a SIP submission that otherwise 
satisfies the provisions of the Clean Air Act. Thus, the requirements 
of section 12(d) of the National Technology Transfer and Advancement 
Act of 1995 (15 U.S.C. 272 note) do not apply. This rule does not 
impose an information collection burden under the provisions of the 
Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.).
    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 action is not a ``major rule'' as defined by 5 U.S.C. 
804(2).
    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 September 19, 2005. 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, Carbon monoxide, 
Intergovernmental relations, Reporting and recordkeeping requirements.

    Dated: July 14, 2005.
Richard E. Greene,
Regional Administrator, Region 6.

0
40 CFR part 52 is amended as follows:

PART 52--[AMENDED]

0
1. The authority citation for part 52 continues to read as follows:

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

Subpart GG--New Mexico

0
2. Section 52.1620 is amended as follows:
0
a. In paragraph (c), in the second table entitled ``EPA Approved 
Albuquerque/

[[Page 41966]]

Bernalillo County, NM Regulations,'' by revising the entries for parts 
1, 100, and 102.
0
b. In paragraph (e), in the second table entitled ``EPA Approved 
Nonregulatory Provisions and Quasi-Regulatory Measures in the New 
Mexico SIP'' by adding one new entry to the end of the table. The 
revisions read as follows:


Sec.  52.1620  Identification of plan.

* * * * *
    (c) * * *

                           EPA Approved Albuquerque/Bernalillo County, NM Regulations
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                                                                    State
                                                                  approval/       EPA
           State citation                   Title/subject         effective     approval        Explanation
                                                                     date         date
----------------------------------------------------------------------------------------------------------------
                         Albuquerque/Bernalillo County, Air Quality Control Regulations
----------------------------------------------------------------------------------------------------------------
 
                                                 * * * * * * *
   New Mexico Administrative Code (NMAC) Title 20--Environment Protection, Chapter 11--Albuquerque/Bernalillo
                                        County Air Quality Control Board
----------------------------------------------------------------------------------------------------------------
Part 1 (20.11.1 NMAC)..............  General Provisions........     09/07/04      7/21/05
                                                                               [Insert FR
                                                                               page where
                                                                                 document
                                                                                  begins]
 
                                                  * * * * * * *
Part 100 (20.11.100 NMAC)..........  Motor Vehicle Inspection--     09/07/04      7/21/05
                                      Decentralized.                           [Insert FR
                                                                               page where
                                                                                 document
                                                                                  begins]
Part 102 (20.11.102 NMAC)..........  Oxygenated Fuels..........     09/07/04      7/21/05
                                                                               [Insert FR
                                                                               page where
                                                                                 document
                                                                                  begins]
 
                                                  * * * * * * *
----------------------------------------------------------------------------------------------------------------

* * * * *
    (e) * * *

            EPA Approved Nonregulatory Provisions and Quasi-Regulatory Measures in the New Mexico SIP
----------------------------------------------------------------------------------------------------------------
                                                                    State
                                                                  submittal       EPA
       Name of SIP provision          Applicable geographic or      date/       approval        Explanation
                                         nonattainment area       effective       date
                                                                     date
----------------------------------------------------------------------------------------------------------------
 
                                                  * * * * * * *
Second 10-year maintenance plan      Bernalillo County.........     09/07/04      7/21/05
 (limited maintenance plan) for                                                [Insert FR
 Albuquerque/Bernalillo County.                                                page where
                                                                                 document
                                                                                  begins]
 
                                                  * * * * * * *
----------------------------------------------------------------------------------------------------------------


[[Page 41967]]


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3. Section 52.1627 is amended by designating the existing text as 
paragraph (a) and by adding paragraph (b) to read as follows:


Sec.  52.1627  Control strategy and regulations: Carbon monoxide.

* * * * *
    (b) Approval--The Albuquerque/Bernalillo County carbon monoxide 
limited maintenance plan revision dated September 7, 2004, meets the 
requirements of section 172 of the Clean Air Act, and is therefore 
approved.

[FR Doc. 05-14388 Filed 7-20-05; 8:45 am]
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