Revisions to the California State Implementation Plan: Monterey Bay Unified Air Pollution Control District, Placer County Air Pollution Control District

Federal Register: June 11, 2009 (Volume 74, Number 111)

Rules and Regulations

Page 27714-27716

From the Federal Register Online via GPO Access [wais.access.gpo.gov]

DOCID:fr11jn09-16

ENVIRONMENTAL PROTECTION AGENCY 40 CFR Part 52

EPA-R09-OAR-2009-0230; FRL-8900-8

Revisions to the California State Implementation Plan, Monterey

Bay Unified Air Pollution Control District, Placer County Air Pollution

Control District

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

SUMMARY: EPA is taking direct final action to approve revisions to the

Monterey Bay Unified Air Pollution Control District (MBUAPCD) and

Placer County Air Pollution Control District (PCAPCD) portions of the

California State Implementation Plan (SIP). These revisions concern volatile organic compound (VOC) emissions from storage tanks and the operation of steam drive crude oil production wells. 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 August 10, 2009 without further notice, unless EPA receives adverse comments by July 13, 2009. If we receive such comments, we will publish a timely withdrawal in the

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- 2009-0230, by one of the following methods: 1. Federal eRulemaking Portal: www.regulations.gov. Follow the on- line instructions. 2. E-mail: steckel.andrew@epa.gov. 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 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 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. 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 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: Nicole Law, EPA Region IX, (415) 947- 4126, Law.Nicole@epa.gov.

SUPPLEMENTARY INFORMATION: Throughout this document, ``we,'' ``us'' and

``our'' refer to EPA.

Table of Contents

1. The State's Submittal

   1. What rules did the State submit?

   2. Are there other versions of these rules?

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

2. EPA's Evaluation and Action

   1. How is EPA evaluating the rules?

   2. Do the rules meet the evaluation criteria?

   3. EPA Recommendations to Further Improve the Rules

   4. Public Comment and Final Action

3. Statutory and Executive Order Reviews

1. The State's Submittal

   1. 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 (CARB).

      Table 1--Submitted Rules

      Local agency

      Rule No.

      Rule title

      Adopted

      Submitted

      MBUAPCD..................................

      427 Steam Drive Crude Oil Production

      10/17/07

      03/07/08

      Wells.

      PCAPCD...................................

      212 Storage of Organic Liquids......

      06/19/97

      07/18/08

      On April 17, 2008 and August 22, 2008, these rule submittals were found to meet the completeness criteria in 40 CFR Part 51, Appendix V, which must be met before formal EPA review.

   2. Are there other versions of these rules?

      We approved versions of MBUAPCD Rule 427 and PCAPCD Rule 212 into the SIP on August 22, 2002 (see 67 FR 54349) and May 6, 1996 (see 61 FR 20145). There have been no subsequent submittals of these rules.

   3. 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. PCAPCD Rule 212 limits emissions of VOCs from storage tanks. The June 19, 2008 amendments to Rule 212 are mostly administrative changes to improve on the formatting and clarity of the rule. MBUAPCD Rule 427 limits emissions of VOCs from the operation of steam drive crude oil production wells. The majority of the October 17, 2007 amendments to

      Rule 427 were editorial in nature, and the major changes made narrowed an exemption and required documentation to claim exemption. EPA's technical support documents (TSD) have more information about these rules.

2. EPA's Evaluation and Action

   1. 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

      Page 27715

      as well as each major source in nonattainment areas (see section 182(a)(2)), and must not relax existing requirements (see sections 110(l) and 193). The PCAPCD regulates an ozone nonattainment area (see 40 CFR part 81), so Rule 212 must fulfill RACT. MBUAPCD has been in attainment for ozone since 1997. At that time, EPA determined that

      MBUAPCD was implementing RACT as required and that subsequent upgrades to RACT were not required so long as the area continued to maintain the standard.

      Guidance and policy documents that we use to help evaluate specific enforceability and RACT requirements consistently include the following: 1. Portions of the proposed post-1987 ozone and carbon monoxide policy that concern RACT, 52 FR 45044, November 24, 1987. 2. ``Issues Relating to VOC Regulation Cutpoints, Deficiencies, and

      Deviations,'' EPA, May 25, 1988 (the Bluebook). 3. ``Guidance Document for Correcting Common VOC & Other Rule

      Deficiencies,'' EPA Region 9, August 21, 2001 (the Little Bluebook). 4. ``Control of Volatile Organic Emissions from Storage of

      Petroleum Liquids in Fixed-Roof Tanks,'' EPA-450/2-77-036, December 1977. 5. ``Control of Volatile Organic Emissions from Petroleum Liquid

      Storage in External Floating Roof Tanks,'' EPA-450/2-78-047, February 1978. 6. ``Alternative Control Techniques Document: Volatile Organic

      Liquid Storage in Floating and Fixed Roof Tanks,'' EPA-453/R-94-001,

      January 1994. 7. ``Assessment of VOC Emissions From Well Vents Associated with

      Thermally Enhanced Oil Recovery,'' EPA-0-0/0-81-003, September 1981.

   2. 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 evaluation.

   3. EPA Recommendations To Further Improve the Rules

      The TSD for PCAPCD Rule 212 describes additional rule revisions that do not affect EPA's current action but are recommended for the next time the local agency modifies the rules.

   4. 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 July 13, 2009, 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 August 10, 2009. 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.

3. 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 provide EPA with the discretionary authority to address, as appropriate, disproportionate human health or environmental effects, using practicable and legally permissible methods, under

   Executive Order 12898 (59 FR 7629, February 16, 1994).

   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 August 10, 2009. 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

   Page 27716

   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: April 3, 2009.

   Laura Yoshii,

   Acting Regional Administrator, Region IX. 0

   Part 52, chapter I, title 40 of the Code of Federal Regulations 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 F--California 0 2. Section 52.220 is amended by adding paragraphs (c)(354)(i)(D) and

   (359)(i)(C) to read as follows:

   Sec. 52.220 Identification of plan.

   * * * * *

   (c) * * *

   (354) * * *

   (i) * * *

   (D) Monterey Bay Unified Air Pollution Control District.

   (1) Rule 427, ``Steam Drive Crude Oil Production Wells,'' adopted on January 16, 1980 and amended on October 17, 2007.

   * * * * *

   (359) * * *

   (i) * * *

   (C) Placer County Air Pollution Control District.

   (1) Rule 212, ``Storage of Organic Liquids,'' adopted on May 24, 1977 and amended on June 19, 1997.

   * * * * *

   FR Doc. E9-13481 Filed 6-10-09; 8:45 am

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