[Federal Register Volume 76, Number 20 (Monday, January 31, 2011)]
[Rules and Regulations]
[Pages 5277-5280]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2011-1926]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R09-OAR-2010-0860; FRL-9249-5]


Revisions to the California State Implementation Plan, Santa 
Barbara Air Pollution Control District, Antelope Valley Air Quality 
Management District, Ventura County Air Pollution Control District and 
Placer County Air Pollution Control District

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: EPA is taking direct final action to approve revisions to the 
Santa Barbara Air Pollution Control District (SBAPCD), Antelope Valley 
Air Quality Management District (AVAQMD), Ventura County Air Pollution 
Control District (VCAPCD) and Placer County Air Pollution Control 
District (PCAPCD) portion of the California State Implementation Plan 
(SIP). These revisions concern volatile organic compound (VOC) 
emissions from gasoline bulk plants, terminals and vehicle dispensing 
facilities. We are approving local rules that regulate these emission 
sources under the Clean Air Act as amended in 1990 (CAA or the Act).

DATES: This rule is effective on April 1, 2011 without further notice, 
unless EPA receives adverse comments by March 2, 2011. If we receive 
such comments, we will publish a timely withdrawal in the

[[Page 5278]]

Federal Register to notify the public that this direct final rule will 
not take effect.

ADDRESSES: Submit comments, identified by docket number EPA-R09-OAR-
2010-0860, 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: Andrew Steckel (Air-4), 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 http://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 http://www.regulations.gov or e-mail. http://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. Electronic files should avoid the use of special characters, 
any form of encryption, and be free of any defects or viruses.
    Docket: The index to the docket for this action is available 
electronically at http://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 in the 
FOR FURTHER INFORMATION CONTACT section.

FOR FURTHER INFORMATION CONTACT: David Grounds, EPA Region IX, (415) 
972-3019, [email protected].

SUPPLEMENTARY INFORMATION: Throughout this document, ``we,'' ``us,'' 
and ``our'' refer to EPA.

Table of Contents

    I. The State's Submittal
    A. What rules did the State submit?
    B. Are there other versions of these rules?
    C. What is the purpose of the submitted rule revisions?
II. EPA's Evaluation and Action
    A. How is EPA evaluating the rules?
    B. Do the rules meet the evaluation criteria?
    C. EPA recommendations To Further Improve the Rules
    D. Public Comment and Final Action
III. Statutory and Executive Order Reviews

I. The State's Submittal

A. What rules did the State submit?

    Table 1 lists the rules we are approving with the dates that they 
were adopted by the local air agencies and submitted by the California 
Air Resources Board.

                                            Table 1--Submitted Rules
----------------------------------------------------------------------------------------------------------------
             Local agency                Rule No.            Rule title               Adopted        Submitted
----------------------------------------------------------------------------------------------------------------
SBAPCD................................        316  Storage and Transfer of              01/15/09        03/17/09
                                                    Gasoline.
AVAQMD................................        461  Gasoline Transfer and                10/21/08        04/06/09
                                                    Dispensing.
VCAPCD................................         70  Storage and Transfer of              03/10/09        09/15/09
PCAPCD................................        215   Gasoline.                           06/19/97        07/18/08
                                                   Transfer of Gasoline Into
                                                    Tank Trucks, Trailers, and
                                                    Railroad Tank Cars at
                                                    Loading Facilities.
----------------------------------------------------------------------------------------------------------------

    On August 22, 2008, EPA determined that the submittal for PCAPCD 
Rule 215 met the completeness criteria in 40 CFR Part 51 Appendix V, 
which must be met before formal EPA review. On April 20, 2009, EPA 
determined that the submittal for SBAPCD Rule 316 met the completeness 
criteria. On May 13, 2009, EPA determined that the submittal for AVAQMD 
Rule 461 met the completeness criteria. On January 21, 2010, EPA 
determined that the submittal for VCAPCD Rule 70 met the completeness 
criteria.

B. Are there other versions of these rules?

    We approved an earlier version of SBAPCD Rule 316 into the SIP on 
11/26/99 (64 FR 66393). We approved an earlier version of AVAQMD Rule 
461 into the SIP on 10/07/96 (61 FR 52297). We approved an earlier 
version of VCAPCD Rule 70 into the SIP on 05/24/04 (69 FR 29451). We 
approved an earlier version of PCAPCD Rule 215 into the SIP on 05/06/96 
(61 FR 20145).

C. What is the purpose of the submitted rule revisions?

    VOCs help produce ground-level ozone and smog, which harm human 
health and the environment. Section 110(a) of the CAA requires States 
to submit regulations that control VOC emissions.
    VCAPCD Rule 70 and SBAPCD Rule 316 impose more stringent 
requirements on VOC emissions from gasoline bulk plants, terminals, and 
vehicle dispensing facilities, while AVAQMD Rule 461 and PCAPCD Rule 
215 impose more stringent requirements on the transfer of gasoline to 
and from any tank truck, trailer or railroad tank car. EPA's technical 
support documents (TSD) have more information about these rules.

II. EPA's Evaluation and Action

A. How is EPA evaluating the rules?

    Generally, SIP rules must be enforceable (see section 110(a) of the 
Act), must require Reasonably Available Control Technology (RACT) for 
each category of sources covered by a Control Techniques Guidelines 
(CTG) document as well as each major source in nonattainment areas (see 
sections 182(a)(2) and (b)(2)), and must not relax existing 
requirements (see sections 110(l) and 193). The VCAPCD, AVAQMD and 
PCAPCD regulate ozone nonattainment areas (see 40 CFR part 81), so 
Rules 70, 461 and 215 must fulfill RACT. SBAPCD regulates an ozone 
attainment area and is not required to fulfill RACT.
    Guidance and policy documents that we use to evaluate 
enforceability and RACT requirements consistently include the 
following:
    1. ``Issues Relating to VOC Regulation Cutpoints, Deficiencies, and 
Deviations,'' EPA, May 25, 1988 (the Bluebook).
    2. ``Guidance Document for Correcting Common VOC & Other Rule 
Deficiencies,'' EPA Region 9, August 21, 2001 (the Little Bluebook).

[[Page 5279]]

    3. ``Technical Guidance--Stage II Vapor Recovery Systems for 
Control of Vehicle Refueling Emissions at Gasoline Dispensing 
Facilities,'' (EPA-450/3-91-022).
    4. ``Control of Volatile Organic Emissions From Bulk Gasoline 
Plants,'' (EPA-450/2-77-035).
    5. ``Control of Volatile Organic Emissions From Storage of 
Petroleum Liquids in Fixed-Roof Tanks,'' (EPA-450/2-77-036).
    6. ``Control of Volatile Organic Emissions from Petroleum Liquid 
Storage in External Floating Roof Tanks,'' (EPA-450/2-78-047).
    7. ``Stationary Sources. Liquid Storage, Bulk Terminals and Plants, 
GDF Storage Tanks, Vehicle Refueling,'' (EPA-453/R-92-018(ACT)).
    8. ``Gasoline Dispensing Facilities--Stage II Vapor Recovery,'' 
EPA's Draft Model Rule, August 17, 1992.
    9. ``Gasoline Vapor Recovery Guidelines,'' EPA Region IX, April 24, 
2000.

B. Do the rules meet the evaluation criteria?

    We believe these rules are consistent with the relevant policy and 
guidance regarding enforceability, RACT, and SIP relaxations. The TSDs 
have more information on our evaluations.

C. EPA Recommendations To Further Improve the Rules

    The TSDs describe additional rule revisions that we recommend for 
the next time the local agencies modify the rules.

D. Public Comment and Final Action

    As authorized in section 110(k)(3) of the Act, EPA is fully 
approving the submitted rules because we believe they fulfill all 
relevant requirements. We do not think anyone will object to this 
approval, so we are finalizing it without proposing it in advance. 
However, in the Proposed Rules section of this Federal Register, we are 
simultaneously proposing approval of the same submitted rules. If we 
receive adverse comments by March 2, 2011, we will publish a timely 
withdrawal in the Federal Register to notify the public that the direct 
final approval will not take effect and we will address the comments in 
a subsequent final action based on the proposal. If we do not receive 
timely adverse comments, the direct final approval will be effective 
without further notice on April 1, 2011. This will incorporate these 
rules into the Federally enforceable SIP.
    Please note that if EPA receives adverse comment on an amendment, 
paragraph, or section of this rule and if that provision may be severed 
from the remainder of the rule, EPA may adopt as final those provisions 
of the rule that are not the subject of an adverse comment.

III. Statutory and Executive Order Reviews

    Under the Clean Air Act, the Administrator is required to approve a 
SIP submission that complies with the provisions of the Act and 
applicable Federal regulations. 42 U.S.C. 7410(k); 40 CFR 52.02(a). 
Thus, in reviewing SIP submissions, EPA's role is to approve State 
choices, provided that they meet the criteria of the Clean Air Act. 
Accordingly, this action merely approves State law as meeting Federal 
requirements and does not impose additional requirements beyond those 
imposed by State law. For that reason, this action:
     Is not a ``significant regulatory action'' subject to 
review by the Office of Management and Budget under Executive Order 
12866 (58 FR 51735, October 4, 1993);
     Does not impose an information collection burden under the 
provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);
     Is certified as not having a significant economic impact 
on a substantial number of small entities under the Regulatory 
Flexibility Act (5 U.S.C. 601 et seq.);
     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);
     Does not have Federalism implications as specified in 
Executive Order 13132 (64 FR 43255, August 10, 1999);
     Is not an economically significant regulatory action based 
on health or safety risks subject to Executive Order 13045 (62 FR 
19885, April 23, 1997);
     Is not a significant regulatory action subject to 
Executive Order 13211 (66 FR 28355, May 22, 2001);
     Is not subject to requirements of Section 12(d) of the 
National Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272 
note) because application of those requirements would be inconsistent 
with the Clean Air Act; and
     Does not interfere with Executive Order 12898 (59 FR 7629 
(Feb. 16, 1994)) because EPA lacks the discretionary authority to 
address environmental justice in this rulemaking.
In addition, this rule does not have Tribal implications as specified 
by Executive Order 13175 (65 FR 67249, November 9, 2000), because the 
SIP is not approved to apply in Indian country located in the State, 
and EPA notes that it will not impose substantial direct costs on 
Tribal governments or preempt Tribal law.
    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 action 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 April 1, 2011. Filing a 
petition for reconsideration by the Administrator of this final rule 
does not affect the finality of this action 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. Parties with objections to this direct final 
rule are encouraged to file a comment in response to the parallel 
notice of proposed rulemaking for this action published in the Proposed 
Rules section of today's Federal Register, rather than file an 
immediate petition for judicial review of this direct final rule, so 
that EPA can withdraw this direct final rule and address the comment in 
the proposed rulemaking. 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, Incorporation by 
reference, Intergovernmental relations, Ozone, Reporting and 
recordkeeping requirements, Volatile organic compounds.

    Dated: December 21, 2010.
Keith Takata,
Acting Regional Administrator, Region IX.
    Part 52, chapter I, title 40 of the Code of Federal Regulations is 
amended as follows:

[[Page 5280]]

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 F--California

0
2. Section 52.220 is amended by adding paragraphs (c)(359)(i)(C)(3), 
(363)(i)(B)(2), (366)(i)(C) and (377)(i)(C) to read as follows:


Sec.  52.220  Identification of plan.

* * * * *
    (c) * * *
    (359) * * *
    (i) * * *
    (C) * * *
    (3) Rule 215, ``Transfer of Gasoline Into Trucks, Trailers, and 
Railroad Tank Cars at Loading Facilities,'' adopted on June 19, 1997.
* * * * *
    (363) * * *
    (i) * * *
    (B) * * *
    (2) Rule 316, ``Storage and Transfer of Gasoline,'' adopted on 
January 15, 2009.
* * * * *
    (366) * * *
    (i) * * *
    (C) Antelope Valley Air Quality Management District.
    (1) Rule 461, ``Gasoline Transfer and Dispensing,'' adopted on 
October 21, 2008.
* * * * *
    (377) * * *
    (i) * * *
    (C) Ventura County Air Pollution Control District.
    (1) Rule 70, ``Storage and Transfer of Gasoline,'' adopted on March
    10, 2009.
* * * * *
[FR Doc. 2011-1926 Filed 1-28-11; 8:45 am]
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