[Federal Register Volume 71, Number 138 (Wednesday, July 19, 2006)]
[Proposed Rules]
[Pages 40952-40955]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E6-11450]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Parts 52 and 81

[EPA-R09-OAR-2006-0583; FRL-8199-6]


Approval and Promulgation of Implementation Plans; Designation of 
Areas for Air Quality Planning Purposes; State of California; PM-10; 
Determination of Attainment for the San Joaquin Valley Nonattainment 
Area; Determination Regarding Applicability of Certain Clean Air Act 
Requirements

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: EPA is proposing to determine that the San Joaquin Valley 
nonattainment area (SJV) in California has attained the National 
Ambient Air Quality Standards (NAAQS) for particulate matter with an 
aerodynamic diameter less than or equal to a nominal 10 micrometers 
(PM-10). This proposed determination is based upon monitored air 
quality data for the PM-10 NAAQS during the years 2003-2005. The SJV 
continues to attain the PM-10 NAAQS in 2006; no exceedances of the 24 
hour NAAQS have been recorded at any of the SJV monitoring sites from 
January 1, 2006 through March 31, 2006. EPA is also proposing to 
determine that, because the SJV has attained the PM-10 NAAQS, certain 
Clean Air Act (CAA or the Act) requirements are not applicable for as 
long as the SJV continues to attain the PM-10 NAAQS.

DATES: Written comments must be received on or before August 18, 2006.

ADDRESSES: Submit comments, identified by docket number EPA-R09-OAR-
2006-0583, by one of the following methods:
    (1) Federal eRulemaking portal: http://www.regulations.gov. Follow 
the on-line instructions.
    (2) E-mail: [email protected].
    (3) Mail or deliver: Doris Lo (AIR-2), U.S. Environmental 
Protection Agency Region IX, 75 Hawthorne Street, San Francisco, CA 
94105-3901.
    Instructions: All comments will be included in the public docket 
without change and may be made available online at www.regulations.gov, 
including any personal information provided, unless the comment 
includes Confidential Business Information (CBI) or other information 
whose disclosure is restricted by statute. Information that you 
consider CBI or otherwise protected should be clearly identified as 
such and should not be submitted through the www.regulations.gov or e-
mail. www.regulations.gov is an anonymous access system, and EPA will 
not know your identity or contact information unless you provide it in 
the body of your comment. If you send e-mail directly to EPA, your e-
mail address will be automatically captured and included as part of the 
public comment. If EPA cannot read your comment due to technical 
difficulties and cannot contact you for clarification, EPA may not be 
able to consider your comment.
    Docket: The index to the docket for this action is available 
electronically at www.regulations.gov and in hard copy at EPA Region 
IX, 75 Hawthorne Street, San Francisco, California. While all documents 
in the docket are listed in the index, some information may be publicly 
available only at the hard copy location (e.g., copyrighted material), 
and some may not be publicly available in either location (e.g., CBI). 
To inspect the hard copy materials, please schedule an appointment 
during normal business hours with the contact listed directly below.

FOR FURTHER INFORMATION CONTACT: Doris Lo, EPA Region IX, (415) 972-
3959, [email protected].

SUPPLEMENTARY INFORMATION: Throughout this document, wherever ``we,'' 
``us,'' or ``our'' are used, we mean EPA.

Table of Contents

I. Background
    A. The NAAQS for PM-10
    B. Designation, Classification and Air Quality Planning for PM-
10 in the SJV
    C. Attainment Determinations
II. Proposed Attainment Determination for the SJV
III. Applicability of Clean Air Act Planning Requirements
IV. EPA's Proposed Action
V. Statutory and Executive Order Reviews

I. Background

A. The NAAQS for PM-10

    Particulate matter with an aerodynamic diameter of less than or 
equal to 10 micrometers (PM-10) is the subject of this action. The 
NAAQS are limits for certain ambient air pollutants set by EPA to 
protect public health and welfare. PM-10 is among the ambient air 
pollutants for which EPA has established a health-based standard.
    On July 1, 1987 (52 FR 24634), EPA revised the NAAQS for 
particulate matter with an indicator that includes only those particles 
with an aerodynamic diameter less than or equal to a nominal 10 
micrometers. The 24-hour primary PM-10 standard is 150 micrograms per 
cubic meter ([mu]g/m3) with no more than one expected 
exceedance per year. The annual primary PM-10 standard is 50 [mu]g/
m3 as an annual arithmetic mean. The secondary PM-10 
standards, promulgated to protect against adverse welfare effects, are 
identical to the primary standards. See 40 CFR 50.6.

B. Designation, Classification and Air Quality Planning for PM-10 in 
the SJV

    In 1990, Congress amended the Clean Air Act to address, among other 
things, continued nonattainment of the PM-10 NAAQS. On the date of 
enactment of the 1990 Clean Air Act Amendments, PM-10 areas, including 
the SJV, meeting the qualifications of section 107(d)(4)(B) of the 
amended Act, were designated nonattainment by operation of law. See 56 
FR 11101 (March 15, 1991). EPA codified the boundaries of the SJV at 40 
CFR 81.305.\1\
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    \1\ The San Joaquin Valley PM-10 nonattainment area includes the 
following counties in California's central valley: Fresno, western 
portion of Kern, Kings, Tulare, San Joaquin, Stanislaus, Madera and 
Merced.
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    Once an area is designated nonattainment for PM-10, section 188 of 
the CAA outlines the process for classifying the area and establishes 
the area's initial attainment deadline. In accordance with section 
188(a), at the time of designation, all PM-10 nonattainment areas, 
including the SJV, were initially classified as moderate nonattainment. 
On December 24, 1991, California submitted a moderate area PM-10 Plan 
for the SJV which demonstrated that the area could not attain the PM-10 
NAAQS by the moderate area attainment date, December 31, 1994.
    Section 188(b)(1) of the Act provides that moderate areas can 
subsequently be reclassified as serious before the applicable moderate 
area attainment date if at any time EPA determines that the area cannot 
``practicably'' attain the PM-10 NAAQS by that deadline. On January 8, 
1993 (58 FR 3337), EPA made such a determination and reclassified the 
SJV as serious.
    On August 19, 2003, the State of California submitted the ``2003 
PM-10

[[Page 40953]]

Plan, San Joaquin Valley Plan to Attain Federal Standards for 
Particulate Matter 10 Microns and Smaller'' and submitted Amendments to 
that plan on December 30, 2003 (collectively, 2003 PM-10 Plan). The 
State submitted the 2003 PM-10 Plan to address, among other CAA 
requirements, those of section 189(d) following EPA's determination 
that the SJV failed to meet its serious area attainment deadline of 
December 31, 2001. See 67 FR 48039 (July 23, 2002). On May 26, 2006, 
EPA approved the 2003 PM-10 Plan except for the section 172(c)(9) 
contingency measure requirement. The approved elements include 
emissions inventories as meeting the requirements of 172(c)(3), a 
demonstration of best available control measures for all significant 
source categories as meeting the requirements of section 189(b)(1)(B), 
a demonstration of attainment by December 31, 2010 as meeting the 
requirements of sections 179(d)(3) and 189(d), and a demonstration of 
reasonable further progress as meeting the requirements of sections 
172(c)(2) and 189(c)(1). A more detailed discussion of the history of 
air quality planning and the contents of the approved plan can be found 
in EPA's proposed and final actions at 69 FR 5412 (February 4, 2004) 
and 69 FR 30006.

C. Attainment Determinations

    On May 8, 2006, the State requested that EPA find that the SJV has 
attained the PM-10 standards based on the area's air quality for 2003-
2005. See letter from Catherine Witherspoon, California Air Resources 
Board (CARB), to Wayne Nastri, EPA Region 9, May 8, 2006 (Witherspoon 
Letter). Generally, we will determine whether an area's air quality 
meets the PM-10 NAAQS for purposes of sections 179(c)(1) and 188(b)(2) 
based upon data gathered at established state and local air monitoring 
stations (SLAMS) and national air monitoring stations (NAMS) in the 
nonattainment area and entered into the EPA's Air Quality System (AQS) 
database. Data from air monitors operated by state/local agencies in 
compliance with EPA monitoring requirements must be submitted to AQS. 
Heads of monitoring agencies annually certify that these data are 
accurate to the best of their knowledge. Accordingly, EPA relies 
primarily on data in AQS when determining the attainment status of 
areas. See 40 CFR 50.6; 40 CFR part 50, appendix J; 40 CFR part 53; 40 
CFR part 58, appendix A. We will also consider air quality data from 
other air monitoring stations in the nonattainment area even if they 
have not been entered into the AQS if the stations meet the federal 
monitoring requirements for SLAMS. See August 22, 1997 Memorandum 
``Agency Policy on the Use of Special Purpose Monitoring Data,'' from 
John S. Seitz, Director, Office of Air Quality Planning and Standards, 
to the Regional Air Directors (Seitz Memo). All data are reviewed to 
determine the area's air quality status in accordance with our guidance 
at 40 CFR part 50, appendix K.
    Attainment of the annual PM-10 standard is achieved when the annual 
arithmetic mean PM-10 concentration over a three-year period is equal 
to or less than 50 [mu]g/m3. Attainment of the 24-hour 
standard is determined by calculating the expected number of days in a 
year with PM-10 concentrations greater than 150 [mu]g/m3. 
The 24-hour standard is attained when the expected number of days per 
year with levels above 150 [mu]g/m3 (averaged over a three-
year period) is less than or equal to one. Three consecutive years of 
air quality data are necessary to show attainment of the 24-hour and 
annual standards for PM-10. See 40 CFR part 50, appendix K. A complete 
year of air quality data, as referred to in 40 CFR part 50, appendix K, 
includes all four calendar quarters with each quarter containing data 
from at least 75 percent of the scheduled sampling days.

II. Proposed Attainment Determination for the SJV

    The SJV has 15 SLAMS sites operated by the San Joaquin Valley 
Unified Air Pollution Control District (District or SJVUAPCD) and CARB. 
These monitoring stations are located throughout the SJV.\2\ The 
District and CARB measure ambient (24-hour-average) PM-10 
concentrations in the SJV at a frequency of once every six days, except 
at the Corcoran SLAMS site which operates on a one in three day 
schedule.\3\
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    \2\ EPA evaluated the adequacy of the SJV monitoring network in 
connection with its approval of the 2003 PM-10 Plan. See 69 FR at 
30032-30033 and ``Evaluation of the Adequacy of the Monitoring 
Network for the San Joaquin Valley, California for the Annual and 
24-Hour PM-10 Standards,'' Bob Pallarino, EPA Region 9, September 
22, 2003.
    \3\ Most PM-10 monitoring sites utilize a manual sampler, 
designated as a Federal Reference Method (FRM), operated on a once 
every six day schedule. These samplers draw ambient air through a 
quartz fiber filter which is weighed before and after sampling in 
order to determine the mass of PM-10 that is collected after the 24-
hour run period. At Corcoran two manual FRM samplers are operated on 
a staggered once every six day schedule that enables the District to 
collect a 24-hour PM-10 sample every three days.
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    Table 1 summarizes the PM-10 data collected in the SJV from 2003-
2005 and reported by CARB to the AQS database. As shown in Table 1, no 
exceedances of the 24-hour PM-10 NAAQS of 150 [mu]g/m3 were 
measured in SJV during the 2003-2005 period and the annual-average PM-
10 concentrations measured during that period were below the 
corresponding standard of 50 [mu]g/m3.

                         Table 1.--San Joaquin Valley SLAMS Network PM-10 Data 2003-2005
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                                                                    24 hour average              3 year annual
                                                        --------------------------------------     arithmetic
                    Monitoring site                       Maximum  ([mu]g/   Expected number    average ([mu]g/
                                                               m\3\)          of exceedances         m\3\)
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Bakersfield--California Ave............................                110                  0                 44
Bakersfield--Golden State Hwy..........................                136                  0                 46
Clovis.................................................                 87                  0                 34
Corcoran*..............................................                150                  0                 44
Fresno--Drummond.......................................                102                  0                 41
Fresno First St........................................                106                  0                 33
Hanford................................................                140                  0                 43
Merced.................................................                 74                  0                 29
Modesto................................................                 93                  0                 29
Oildale................................................                107                  0                 42
Stockton--Hazelton.....................................                 88                  0                 29
Stockton--Wagner/Holt..................................                 68                  0                 22
Taft...................................................                 96                  0                 31

[[Page 40954]]

 
Turlock................................................                 87                  0                 30
Visalia................................................                122                  0                43
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Source: U.S. EPA AQS Database.
* The Federal Reference Monitor at Corcoran did record an exceedance of the 24 hour PM-10 NAAQS on September 3,
  2004 (217 [mu]g/m\3\). This exceedance was flagged by CARB as a high wind natural event. EPA concurred with
  CARB's request to exclude this data from consideration in attainment findings on July 7, 2005.
See May 30, 1996 Memorandum ``Areas Affected by PM-10 Natural Events,'' from Mary D. Nichols, Assistant
  Administrator for Air and Radiation, to the Regional Air Directors. Moreover, even if EPA had not concurred
  with the exclusion of this data, the Corcoran site would still attain the 24-hour NAAQS because the expected
  number of exceedances is less than or equal to one per year, averaged over the three year period 2003-2005.

    As noted above, the 24-hour PM-10 standard is attained when the 
expected number of days per year with levels above 150 [mu]g/m\3\ 
(averaged over a three-year period) is less than or equal to one. As 
can be seen from Table 1, there were no exceedances of the 24-hour PM-
10 NAAQS for the 2003-2005 period and thus the expected number of days 
per year with levels above 150 [mu]g/m\3\ (averaged over that three-
year period) is zero. Thus we propose to find that the SJV has attained 
the 24-hour PM-10 NAAQS. Also as noted above, attainment of the annual 
PM-10 standard is achieved when the annual arithmetic mean PM-10 
concentration over a three-year period is equal to or less than 50 
[mu]g/m\3\. Our review of the data for calendar years 2003-2005 reveals 
that none of the 15 SLAMS sites averaged greater than 50 [mu]g/m\3\. 
Thus we propose to find that the SJV has attained the annual PM-10 
NAAQS. The SJV continues to attain the PM-10 NAAQS based on data 
collected through March 31, 2006.\4\
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    \4\ If EPA makes a final determination of attainment, the Agency 
will consider the most current data available at that time.
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    EPA is aware that the District operates a beta attenuation mass 
(BAM) special purpose monitor at the Corcoran monitoring site to 
support the District's daily air quality forecasts. This BAM monitor 
has recorded a sufficient number of PM-10 concentrations above 150 
[mu]g/m\3\ during the years 2003-2005 to prevent EPA from making a 
finding of attainment if the data were suitable for use in an 
attainment determination. However, in the Seitz Memo, EPA stated that 
``[t]he Agency policy on the use of all special purpose monitoring data 
for any regulatory purpose, with the exception of fine particulate 
matter data (PM-2.5), is all quality-assured and valid data meeting 40 
CFR 58 requirements must be considered within the regulatory process.'' 
Seitz Memo, p.1. With respect to the Corcoran BAM monitor, EPA has 
determined that the District did not perform quality control checks of 
the sampler every two weeks (see 40 CFR part 58, appendix A, section 
3.1.2). Nor did CARB perform independent field audits of the BAM 
sampler as described in 40 CFR part 58, appendix A, section 3.2.2. See 
pp. 5-6 of attachment (``Supporting Information for the San Joaquin 
Valley PM-10 Attainment Determination Request'') to letter from Seyed 
Sadredin, SJVUAPCD, to Catherine Witherspoon, CARB, April 24, 2006, 
attached to Witherspoon Letter. Therefore the BAM data are not valid 
for use in a determination of whether the SJV has attained the PM-10 
standards and, as a result, we have not considered them.

III. Applicability of Clean Air Act Planning Requirements

    The air quality planning requirements for PM-10 nonattainment areas 
are set out in subparts 1 and 4 of title I of the Act. EPA has issued a 
General Preamble \5\ and Addendum to the General Preamble \6\ 
describing our preliminary views on how the Agency intends to review 
state implementation plans (SIPs) submitted to meet the CAA's 
requirements for PM-10 plans. These documents provide detailed 
discussions of our interpretation of the title I requirements.
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    \5\ ``General Preamble for the Implementation of Title I of the 
Clean Air Act Amendments of 1990,'' 57 FR 13498 (April 16, 1992), as 
supplemented at 57 FR 18070 (April 28, 1992).
    \6\ ``State Implementation Plans for Serious PM-10 Nonattainment 
Areas, and Attainment Date Waivers for PM-10 Nonattainment Areas 
Generally; Addendum to the General Preamble for the Implementation 
of Title I of the Clean Air Act Amendments of 1990,'' 59 FR 41998 
(August 16, 1994).
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    In nonattainment areas where monitored data demonstrate that the 
NAAQS have already been achieved, EPA has determined that certain 
requirements of part D, subparts 1 and 2 of the Act do not apply. 
Therefore we do not require certain submissions for an area that has 
attained the NAAQS. These include reasonable further progress (RFP) 
requirements, attainment demonstrations, RACM, and contingency 
measures, because these provisions have the purpose of helping achieve 
attainment of the NAAQS.
    This interpretation of the CAA is known as the Clean Data Policy 
and is the subject of two EPA memoranda. EPA also finalized the 
statutory interpretation set forth in the policy in a final rule, 40 
CFR 51.918, as part of its ``Final Rule to Implement the 8-hour Ozone 
National Ambient Air Quality Standard--Phase 2'' (Phase 2 Final Rule). 
See discussion in the preamble to the rule at 70 FR 71612, 71645-46 
(November 29, 2005).
    EPA believes that the legal bases set forth in detail in our Phase 
2 Final rule, our May 10, 1995 memorandum from John S. Seitz, entitled 
``Reasonable Further Progress, Attainment Demonstration, and Related 
Requirements for Ozone Nonattainment Areas Meeting the Ozone National 
Ambient Air Quality Standard,'' and our December 14, 2004 memorandum 
from Stephen D. Page entitled ``Clean Data Policy for the Fine Particle 
National Ambient Air Quality Standards'' are equally pertinent to the 
interpretation of provisions of subparts 1 and 4 applicable to PM-10. 
Our interpretation that an area that is attaining the standards is 
relieved of obligations to demonstrate RFP and to provide an attainment 
demonstration, RACM and contingency measures pursuant to part D of the 
CAA, pertains whether the standard is PM-10, ozone or PM-2.5.\7\ For 
detailed discussions of this interpretation with respect to the CAA's 
PM-10 requirements for RFP,

[[Page 40955]]

attainment demonstrations, RACM and contingency measures, see 71 FR 
6352, 6354 (February 8, 2006); 71 FR 13021, 13024 (March 14, 2006); and 
71 FR 27440, 27443-27444 (May 11, 2006). We are relying on these 
discussions here. We also discuss our interpretation with respect to 
contingency measures below.
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    \7\ Three U.S. Circuit Courts of Appeals have upheld EPA 
rulemakings applying its interpretation of subparts 1 and 2 with 
respect to ozone. Sierra Club v. EPA, 99F.3d 1551 (10th Cir. 1996); 
Sierra Club v. EPA, 375 F. 3d 537 (7th Cir. 2004); Our Children's 
Earth Foundation v. EPA, N. 04-73032 (9th Cir. June 28, 2005) 
(memorandum opinion).
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    As set forth in Section I of this proposed rule, we have previously 
approved all of the serious area PM-10 attainment plan requirements for 
the SJV except for the contingency measure requirements of CAA section 
172(c)(9). Section 172(c)(9) requires that part D nonattainment area 
plans ``provide for the implementation of specific measures to be 
undertaken if the area fails to make reasonable further progress, or to 
attain the national primary ambient air quality standard by the 
attainment date applicable under this part. Such measures shall be 
included in the plan revision as contingency measures to take effect in 
any such case without further action by the State or the 
Administrator.''
    EPA has determined that these contingency measure requirements of 
CAA section 172(c)(9) no longer apply when an area has attained the 
standard because those ``contingency measures are directed at ensuring 
RFP and attainment by the applicable date.'' (57 FR at 13564); May 10, 
1995 memorandum at 5-6. As explained at length in the memoranda and 
rulemakings cited above, the requirements for RFP and attainment 
demonstrations no longer apply once an area has attained the standard, 
since their purpose--to achieve attainment by the applicable attainment 
date--will already have been fulfilled. Thus it follows that the 
requirement for contingency measures is also suspended for as long as 
the area attains the standard. Consequently, we propose that any final 
finding that the SJV has attained the PM-10 NAAQS would also suspend 
the contingency measure requirements for the SJV.
    Consistent with our Clean Data Policy, we propose that this 
suspension exist only for as long as the area continues to monitor 
attainment of the standards. If the SJV experiences a violation of the 
PM-10 NAAQS in the future, the basis for the contingency measure 
requirement being suspended would no longer exist. In that event, we 
would notify the State that we have determined that the area is no 
longer attaining the PM-10 standards and provide notice to the public 
in the Federal Register.

IV. EPA's Proposed Action

    Based on quality-assured data meeting the requirements of 40 CFR 
part 50, appendix K, we propose to determine that the SJV has attained 
the PM-10 NAAQS. This proposed action, if finalized, would not 
constitute a redesignation to attainment under CAA section 107(d)(3), 
because we would not yet have approved a maintenance plan as required 
under section 175(A) of the CAA or determined that the area has met the 
other CAA requirements for redesignation. The classification and 
designation status in 40 CFR part 81 would remain serious nonattainment 
for this area until such time as California meets the CAA requirements 
for redesignation of the SJV to attainment.
    Consistent with the Agency's Clean Data Policy, EPA also proposes 
to find that the contingency measure requirements of CAA section 
172(c)(9) would no longer apply to the San Joaquin Valley PM-10 
nonattainment area.

V. Statutory and Executive Order Reviews

    Under Executive Order 12866 (58 FR 51735, October 4, 1993), this 
proposed 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 proposes a determination based on air quality data and 
does not impose any additional requirements. Accordingly, the 
Administrator certifies that this proposed 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 proposed rule does not impose any additional enforceable duty, 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 proposed 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 97249, November 9, 2000). This proposed 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 
proposed action merely makes a determination based on air quality data 
and does not alter the relationship or the distribution of power and 
responsibilities established in the CAA. This proposed 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.
    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 proposed 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.).

List of Subjects

40 CFR Part 52

    Environmental protection, Air pollution control, Incorporation by 
reference, Particulate matter, Reporting and recordkeeping 
requirements.

40 CFR Part 81

    Environmental protection, Air pollution control, National parks, 
Wilderness areas.

    Dated: July 6, 2006.
Jane Diamond,
Acting Regional Administrator, Region 9.
 [FR Doc. E6-11450 Filed 7-18-06; 8:45 am]
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