Approval and Promulgation of Air Quality Implementation Plans; Texas; Dallas-Fort Worth Voluntary Mobile Emission Reduction Program, 50208-50212 [05-17030]
Download as PDF
50208
Federal Register / Vol. 70, No. 165 / Friday, August 26, 2005 / Rules and Regulations
[FR Doc. 05–16933 Filed 8–25–05; 8:45 am]
BILLING CODE 6560–50–P
ENVIRONMENTAL PROTECTION
AGENCY
during official business hours by
appointment: Texas Commission on
Environmental Quality, Office of Air
Quality, 12124 Park 35 Circle, Austin,
Texas 78753.
FOR FURTHER INFORMATION CONTACT:
40 CFR Part 52
[TX 126–1–7690; FRL–7960–4]
Approval and Promulgation of Air
Quality Implementation Plans; Texas;
Dallas-Fort Worth Voluntary Mobile
Emission Reduction Program
Sandra Rennie, Air Planning Section
(6PD–L), Environmental Protection
Agency, Region 6, 1445 Ross Avenue,
Suite 700, Dallas, Texas 75202–2733,
telephone (214) 665–7367; fax number
214–665–7263; e-mail address
rennie.sandra@epa.gov.
SUPPLEMENTARY INFORMATION:
Environmental Protection
Agency (EPA).
ACTION: Final rule.
AGENCY:
SUMMARY: EPA is approving a State
Implementation Plan (SIP) revision
submitted by the State of Texas. This
revision approves the Dallas-Fort Worth
(DFW) Voluntary Mobile Emission
Reduction Program (VMEP) which is
relied upon to achieve the National
Ambient Air Quality Standard (NAAQS)
for ozone in the DFW nonattainment
area.
DATES: This rule is effective on
September 26, 2005.
ADDRESSES: Copies of the documents
relevant to this action are in the official
file which is available 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 or Mr. Bill Deese at
214–665–7253 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
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.
Copies of any State submittals and
EPA’s technical support document are
also available for public inspection at
the State Air Agency listed below
Throughout this document wherever
‘‘we,’’ ‘‘us,’’ or ‘‘our’’ is used, we mean
the EPA.
Outline of Topics
I. What Action Is EPA Taking and Why?
II. What Are the Federal Requirements?
III. What Is the Background for This Action?
IV. What Did the State Submit?
V. What Does the DFW VMEP Include?
VI. What Comments Did EPA Receive in
Response to the January 18, 2001,
Proposed Rule?
VII. EPA’s Final Rulemaking Action
VIII. Statutory and Executive Order Reviews
I. What Action Is EPA Taking and
Why?
We are approving the DFW VMEP
into the Texas SIP. We are taking this
action because the State submitted a SIP
revision that relies on the VMEP to
achieve the NAAQS in the DFW ozone
nonattainment area.
II. What Are the Federal Requirements?
Section 172 of the Act provides the
general requirements for nonattainment
plans. Section 172(c)(6) and section 110
require SIPs to include enforceable
emission limitations, and such other
control measures, means or techniques
as well as schedules and timetables for
compliance, as may be necessary to
provide for attainment by the applicable
attainment date. Today’s action involves
approval of one of a collection of
controls adopted by the State to achieve
the ozone standard in the DFW
nonattainment area as required under
section 172. EPA approval of this SIP
revision is governed by section 110 of
the Act.
III. What Is the Background for This
Action?
In the Federal Register published on
January 18, 2001 (66 FR 4756) we
proposed to approve a Voluntary Mobile
Emissions Reduction Program (VMEP)
in nine counties (including the DFW 4county area) as local initiatives. The
counties are Collin, Dallas, Denton, and
Tarrant along with the surrounding
counties of Ellis, Johnson, Kaufman,
Parker, and Rockwall.
Voluntary mobile source strategies
that attempt to complement existing
regulatory programs through voluntary,
non-regulatory changes in local
transportation activities or changes in
in-use vehicle and engine composition
constitute the VMEP. EPA concludes
that the Clean Air Act allows SIP credit
for new approaches to reducing mobile
source emissions. This flexible
approach is consistent with section 110.
Up to 3% of the total future year
emissions reductions required to attain
the appropriate NAAQS may be claimed
under the VMEP policy.1
Specifically, the guidance suggests
key points be considered for approval of
credits. The credits should be
quantifiable, surplus, enforceable,
permanent, and adequately supported.
The State must timely assess and
backfill any shortfall pursuant to
enforceable commitments in the SIP in
the event that the projected emission
reductions are not achieved. In addition,
VMEPs must be consistent with
attainment of the standard and with the
Rate of Progress requirements and not
interfere with other Clean Air Act
requirements.
IV. What Did the State Submit?
The State submitted program
descriptions that projected emission
reductions attributable to each specific
voluntary program. These program
descriptions were included in the DFW
1-hour ozone SIP revision submitted
April 25, 2000.
V. What Does the DFW VMEP Include?
The following Table lists the
programs and projected credits.
Programs submitted with no credit
assigned are also listed.
VOLUNTARY MOBILE EMISSION REDUCTION PROGRAMS AND CREDITS CLAIMED
VOC benefits
(tons per day)
Program type
Alternative Fuel Program .........................................................................................................................................
Employee Trip Reduction ........................................................................................................................................
Public Education Campaign/Ozone Season Fare Reduction .................................................................................
1 Memorandum from Richard D. Wilson, Acting
Assistant Administrator for Air and Radiation,
VerDate Aug<18>2005
16:11 Aug 25, 2005
Jkt 205001
dated October 24, 1997, entitled ‘‘Guidance on
Incorporating Voluntary Mobile Source Emission
PO 00000
Frm 00060
Fmt 4700
Sfmt 4700
NOX benefits
(tons per day)
0.18
0.29
0.08
0.18
0.53
0.15
Reduction Programs in State Implementation Plans
(SIPs).’’
E:\FR\FM\26AUR1.SGM
26AUR1
Federal Register / Vol. 70, No. 165 / Friday, August 26, 2005 / Rules and Regulations
50209
VOLUNTARY MOBILE EMISSION REDUCTION PROGRAMS AND CREDITS CLAIMED—Continued
Program type
VOC benefits
(tons per day)
NOX benefits
(tons per day)
Tier II Locomotive Engines ......................................................................................................................................
Vehicle Retirement Program/Vehicle Maintenance * ...............................................................................................
Sustainable Development ........................................................................................................................................
Non-Road Ozone Season Reductions ....................................................................................................................
Off-Road Heavy Duty Diesel Engine Retrofits ........................................................................................................
0–0.6
0.56
........................
........................
........................
0–3.0
0.77
........................
........................
........................
Total Benefits (tpd) ...........................................................................................................................................
1.11–1.71
1.63–4.63
*Emission
benefits quantified for the Vehicle Retirement Program only. Emission benefits for Vehicle Maintenance are credited in the Vehicle
Inspection and Maintenance Program.
The State commits to evaluating each
program to validate estimated credits, to
evaluating and reporting on the program
implementation and results, and to
timely remedy any credit shortfall. The
State also commits to additional
Transportation Control Measures
(TCMs) that can be substituted for any
shortfall in credit from the estimated
credits for VMEP. These include Signal
Improvements and Freeway Corridor
Management.
EPA’s analysis of all the VMEP
measures shows that each creditable
measure could be quantified. The
reductions are surplus by not being
substitutes for mandatory, required
emission reductions. The SIP with
voluntary measures is enforceable
because the state has committed to fill
any shortfall in credit, thus any
enforcement will be against the State.
The reductions will continue at least for
as long as the time period in which they
are used by a SIP demonstration, so they
are considered permanent. Each
measure is adequately supported by
personnel and program resources for
implementation. The State’s goal is 5.0
tons per day of NOX benefit from the
VMEP program.
VI. What Comments Did EPA Receive in
Response to the January 18, 2001,
Proposed Rule?
Comments were submitted by the
Natural Resources Defense Council
(NRDC).
Comment: The NRDC supports the
objectives of the voluntary initiatives
identified in the proposal. They hope
that greater employment of these
measures will promote greater public
awareness of the area’s severe air
pollution problems and that these
measures will bring about emissions
reductions that will lead to healthy air.
Response: We appreciate the positive
comments about the voluntary
initiatives in the VMEP.
Comment: EPA’s VMEP guidance
document is not consistent with the
Clean Air Act (CAA).
VerDate Aug<18>2005
16:11 Aug 25, 2005
Jkt 205001
Response: In the final decision on
October 28, 2003, by the United States
Court of Appeals, Fifth Circuit, the
Court said EPA’s VMEP policy is a
reasonable interpretation of the statute.
[See BCCA Appeal Group v. EPA, 355
F.3 817 (5th Cir. 2003)]. EPA
determined and the Court agreed,
‘‘* * * that Texas had made the
required commitments to monitor,
assess, report, and remedy any credit
shortfall from the VMEP measures in
accordance with EPA guidance and that
these commitments satisfied the
enforceability requirements of the
CAA.’’ Id, at 847. Therefore, the VMEP
guidance, which is part of the VMEP
policy is consistent with the CAA.
Comment: EPA’s proposed approval
of VMEP Measures for SIP credit is
unlawful. The identified voluntary
measures, or any voluntary measures do
not provide the certainty, enforceability,
quantifiability, replicability,
permanency, and accountability
required for SIP attainment
demonstrations.
Response: EPA disagrees with the
comment, and continues to believe that
the voluntary measures proposed by
Texas for inclusion in the SIP are
approvable under the Act. EPA
acknowledges that by themselves the
measures would not be approvable,
because as noted by the commenter they
are not enforceable against the entities
producing the emissions reductions and
thus do not meet the enforceability
requirement of section 110(a)(2)(A).
However, EPA did not propose to
approve the measures by themselves.
EPA proposed to approve them only in
conjunction with an enforceable
commitment by the state of Texas to
monitor implementation of the
voluntary measures, determine whether
the anticipated reductions from the
measures were in fact achieved, and if
not to either alter the program such that
the requisite reductions will be
achieved, adopt substitute measures, or
demonstrate that the attainment and
maintenance goals of the ozone SIP can
PO 00000
Frm 00061
Fmt 4700
Sfmt 4700
still be met without the reductions from
these measures. Thus, EPA did not
propose to approve voluntary measures
as satisfying the enforceability
requirements of section 110. Rather,
EPA proposed to approve the voluntary
programs into the SIP as part of the
overall attainment plan, and proposed
to approve the state’s enforceable
commitment to monitor, assess, and
rectify any shortfall as meeting the
enforceability requirements of the Act.
EPA continues to believe that this
approach is a proper means of
encouraging implementation of
innovative mobile source control
measures while providing an
enforceable SIP backstop measure.
Ideally, the voluntary measures will
produce the estimated emissions
reductions without need for any state
backfill or Federal or citizen
enforcement. However, should any
shortfall result, Texas will be bound by
the enforceable SIP commitment to
rectify the problem and supply the
necessary emissions reductions. Both
EPA and private citizens retain all of
their rights under sections 113 and 304
to bring appropriate enforcement
pressure to bear against the state should
Texas fail to monitor, assess or fill any
shortfall in emissions reductions
resulting from implementation of the
voluntary measures in the SIP. Contrary
to the commenter’s allegations, the
emissions reductions associated with
the voluntary measures in the Dallas SIP
are required to be achieved; it is
however the state and not the
individuals implementing the voluntary
measures who must ultimately produce
them.
Comment: The commenter raises
numerous arguments concerning the
unenforceability of the voluntary
measures, which will be addressed
below. However, the commenter makes
no mention of the enforceable State
commitment other than to refer to it as
insufficient. This statement without
further explanation does not give EPA
any guidance on the alleged inadequacy
E:\FR\FM\26AUR1.SGM
26AUR1
50210
Federal Register / Vol. 70, No. 165 / Friday, August 26, 2005 / Rules and Regulations
of the commitment nor how the
commenter would have EPA improve
upon it.
Response: EPA continues to maintain
that the commitment is approvable as
meeting the enforceability requirements
of the Act. In the past, EPA has often
approved enforceable state
commitments to take future actions
under the SIP, and these actions have
been enforced by courts against states
that have failed to comply with those
commitments. See, Trustees for Alaska
v. Fink, 17 F.3d 1209 (9th Cir. 1994);
Coalition Against Columbus Center v.
City of New York, 967 F.2d 764 (2d Cir.
1992); Citizens for a Better Environment
v. Deukmejian, 731 F.Supp. 1448,
reconsideration granted in part, 746
F.Supp. 976 (N.D. Cal. 1990); American
Lung Ass’n of New Jersey v. Keane, 871
F.2d 319 (3d Cir. 1989); NRDC v. New
York State Department of
Environmental Conservation, 668
F.Supp. 848 (S.D.N.Y. 1987); Council of
Commuter Organizations v. Gorsuch,
683 F.2d 648 (2d Cir. 1982) and Friends
of the Earth v. EPA, 499 F.2d.-1118 (2d
Cir. 1974) . EPA believes that the Texas
commitments associated with the
voluntary measures portion of the SIP
are similarly enforceable and thus
approvable.
Comment: The commenter alleges that
the Act requires all control measures to
be enforceable against individual
polluters and not just against states.
Response: Many mobile source
control measures are enforceable only
against the state or local transit operator,
and not the individual entities actually
producing the emissions reductions,
e.g., state obligations to establish vehicle
inspection and maintenance programs
or to purchase buses or expand transit
systems. The Clean Air Act does not
require Federal enforcement capability
against individual vehicle owners or
transit users prior to approval of such
programs into the SIP.2
Comment: The commenter alleges that
the public cannot adequately monitor
implementation of the voluntary
measures nor determine whether the
emissions reductions are achieved.
Response: Texas is required by its
enforceable commitment to do just that,
and will make such assessments
available to the public in the normal
course of administrative practice. The
2 The Act does require that enhanced I/M
programs include state enforcement through denial
of vehicle registration without proof of compliance
with inspection requirements. However, the
enforceable SIP requirement is to develop a
program that includes registration denial, and any
enforcement would be against the state for failing
to deny registration. The Act does not contemplate
enforcement actions against individual vehicle
owners attempting to register their vehicles.
VerDate Aug<18>2005
16:11 Aug 25, 2005
Jkt 205001
VMEP measures adopted by the state
covering the Dallas-Fort Worth
nonattainment area are available to the
public on the agency’s Web site.
Citizens may check on the measures
enacted by the TCEQ at the following
link: https://www.tnrcc.state.tx.us/oprd/
sips/sipdfw.html.
Paper copies are also available upon
request by contacting Ms. Kelly Keel of
the Air Quality Planning and
Implementation Division at the TCEQ’s
Chief Engineer’s Office. Ms Keel may be
reached at 512–239–3607 or
kkeel@tceq.state.tx.us.
Because VMEP measures are local
initiatives, citizens may check on the
implemenation of each measure by
contacting the region’s transportation
planners, the North Central Texas
Council of Governments (NCTCOG).
VMEP measures are proposed and
implemented by local sponsors.
Comment: The commenter also claims
that the state itself has raised concerns
about the emissions reductions that will
be achieved from these measures.
Response: Such concerns may be
valid, but notwithstanding Texas has
made a commitment to fill any shortfall
in emissions, which both EPA and
citizens can enforce under the Act. The
State relies on reports from the
NCTCOG regarding implementation of
each VMEP measure. The TCEQ has
received no reports from the NCTCOG
regarding problems with implementing
the VMEP measures enacted in the SIP.
Therefore, the State does not believe
there is a gap that needs to be backfilled
with other emission reduction
measures.
Comment: The commenter makes
various arguments about the
unacceptability of the voluntary
measures program stemming from the
stationary source permitting program
under Title V of the Act.
Response: Title V is totally irrelevant
to these mobile source programs. The
voluntary measures program Texas has
included in the Dallas SIP applies only
to mobile sources that are not subject to
regulation under the Title V stationary
source permitting program.
Comment: The commenter also argues
that EPA can not alter its past
interpretations without completing
notice-and-comment rulemaking.
Response: EPA believes that this
action is consistent with its past
interpretations that enforceable state
commitments to take future action are
approvable SIP measures. For example,
see EPA actions approving California
plans at 62 FR 1150 ( January 8, 1997)
and 65 FR 18903 (April 10, 2000), and
the Houston Attainment Demonstration
at 66 FR 57160 (November 14, 2001). In
PO 00000
Frm 00062
Fmt 4700
Sfmt 4700
addition, this action is consistent with
the guidance cited in section IV of this
document that EPA issued in 1997
indicating its belief that voluntary
programs could be approved in
conjunction with enforceable state
commitments to fill any resultant
shortfall. The individual SIP approval
actions implementing the VMEP
guidance constitute the notice-andcomment rulemaking required to
effectuate action under the guidance.
Thus, this SIP rulemaking satisfies both
CAA and APA rulemaking requirements
with respect to final interpretations of
the Act consistent with the guidance.
Comment: The commenter alleges that
EPA may not alter interpretations of the
Administrator through SIP rulemaking
signed by the Regional Administrator.
Response: The Administrator has
properly delegated the authority for SIP
rulemakings to the Regional
Administrators under Delegation 7–10
dated May 6, 1997, and section 301(a)(1)
of the Act. Thus, the Regional
Administrators are authorized to act for
the Administrator with respect to all
matters pertaining to SIP approvals,
including interpretations of the Act
relevant to a given SIP approval.
Additionally, as we stated in the
previous response, this action is
consistent with EPA’s past
interpretations that enforceable state
commitments to take future action are
approvable SIP measures. Compliance
with voluntary programs is ensured
through the enforceable state
commitments to fill any resultant
shortfall.
Comment: The commenter questions
the 3% limit on voluntary measures,
arguing that this limit itself implicitly
acknowledges that such measures are
not approvable.
Response: EPA did not impose the 3%
limit because it believed the measures to
be suspect, but rather, as noted in the
VMEP guidance, based this decision on
the innovative nature of the measures
and the agency’s lack of experience both
with implementation and calculating
appropriate credit for such measures.
Therefore, EPA created the 3% limit as
a policy matter, indicating in the
guidance that it did not think it would
be appropriate to approve a greater
percentage while the agency begins to
implement the program. EPA further
indicated that it would reassess the
limit after several years of experience
with the program. Since all VMEP
measures would be approved only with
enfoceable state commitments to fill any
resultant shortfall, EPA felt confident
that including voluntary programs up to
3% of required emissions reductions in
SIPs would not jeopardize attainment
E:\FR\FM\26AUR1.SGM
26AUR1
Federal Register / Vol. 70, No. 165 / Friday, August 26, 2005 / Rules and Regulations
and maintenance goals during initial
implementation under the policy.
Further, EPA did not indicate that 3%
of required emissions reductions could
be considered de minimis, as the
commenter implies. EPA agrees with the
commenter that it should not conclude
in advance that any given percentage of
emissions reduction could be
considered per se de minimis for all
areas and types of SIPs. Any conclusion
about the de minimis nature of required
emission reductions should be made in
light of the specific circumstances of the
areas and CAA requirements at issue.
Therefore, all of the commenter’s
arguments relating to the availability of
a de minimis exemption and the need
for notice-and-comment rulemaking to
effectuate it are not relevant to EPA’s
approval of the voluntary measures in
the Dallas SIP.
Comment: NRDC claims the record is
insufficient to support our credit claims.
Response: EPA reviewed the
documentation for each measure of the
VMEP. We found that for each measure
the documentation was acceptable to
demonstrate that the criteria for
approval were met. For each measure
the State was able to show that the
measure plus the State commitment was
quantifiable, surplus, enforceable,
permanent, and adequately supported.
In addition this SIP contained a firm
commitment to cover any shortfall by
supplementing additional TCMs that are
in addition to those already credited to
the SIP.
Comment: In its conclusion the
commenter refers in passing to delays
that may result from identifying and
rectifying emissions shortfalls.
Response: EPA acknowledges that
reductions will be somewhat delayed
where states must first monitor and
assess implementation and
subsequently implement corrections.
For this reason EPA indicated in the
VMEP guidance that states should fill
any shortfalls in a timely fashion. EPA
issued a companion voluntary measures
policy for stationary sources.3 In that
policy EPA indicated that where
voluntary measures were included in
attainment or rate of progress SIPs, any
shortfalls would have to be filled prior
to the relevant attainment or progress
milestone date. EPA believes this is an
appropriate interpretation of the
requirement to fill shortfalls in a timely
fashion under the VMEP policy.
Similarly, the same process is described
3 Memorandum from John Seitz, Director, Office
of Air Quality Planning and Standards, dated
January 19, 2001, entitled ‘‘Stationary Source
Voluntary Measures Final Policy.’’
VerDate Aug<18>2005
16:11 Aug 25, 2005
Jkt 205001
in the recently issued umbrella policy
for use of voluntary measures in SIPs.4
VII. EPA’s Final Rulemaking Action
The DFW VMEP meets the criteria for
credit in the SIP. The State has shown
that the credits are quantifiable, surplus,
enforceable, permanent, adequately
supported, and consistent with the SIP
and the Act. We are granting final
approval of the VMEP into the DFW SIP.
VIII. 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
4 ‘‘Incorporating Voluntary Measures in a State
Implementation Plan,’’ September 2004.
PO 00000
Frm 00063
Fmt 4700
Sfmt 4700
50211
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 October 25, 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).)
E:\FR\FM\26AUR1.SGM
26AUR1
50212
Federal Register / Vol. 70, No. 165 / Friday, August 26, 2005 / Rules and Regulations
List of Subjects in 40 CFR Part 52
Environmental protection, Air
pollution control, Carbon monoxide,
Incorporation by reference,
Intergovernmental relations, Lead,
Nitrogen dioxide, Ozone, Reporting and
recordkeeping requirements, Volatile
organic compounds.
Dated: August 12, 2005.
Richard E. Greene,
Regional Administrator, Region 6.
■
Subpart SS—Texas
2. In § 52.2270, the table in paragraph
(e) entitled ‘‘EPA Approved
Nonregulatory Provisions and QuasiRegulatory Measures in the Texas SIP’’
is amended by adding one new entry to
the end of the table to read as follows:
■
40 CFR part 52 is amended as follows:
PART 52—[AMENDED]
1. The authority citation for part 52
continues to read as follows:
■
§ 52.2270
*
Authority: 42 U.S.C. 7401 et seq.
Identification of plan.
*
*
(e) * * *
*
*
EPA APPROVED NONREGULATORY PROVISIONS AND QUASI-REGULATORY MEASURES IN THE TEXAS SIP
*
Voluntary Mobile Emission
Program.
*
*
Dallas/Fort Worth, TX ........................
[FR Doc. 05–17030 Filed 8–25–05; 8:45 am]
BILLING CODE 6560–50–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Parts 52 and 81
[R10–OAR–2005–WA–0005; FRL–7959–6]
Approval and Promulgation of
Implementation Plans and Designation
of Areas for Air Quality Planning
Purposes: Wallula, WA, Area
Environmental Protection
Agency.
ACTION: Final rule.
AGENCY:
16:11 Aug 25, 2005
Jkt 205001
EPA approval date
*
4/25/00
Comments
*
*
8/26/05, [Insert FR page number
where document begins].
*
hours at the following locations: EPA,
Office of Air, Waste, and Toxics (AWT–
107), 1200 Sixth Avenue, Seattle,
Washington 98101. Interested persons
wanting to examine these documents
should make an appointment with the
appropriate office at least 24 hours
before the visiting day. A reasonable fee
may be charged for copies.
FOR FURTHER INFORMATION CONTACT:
Donna Deneen, Office of Air, Waste, and
Toxics (AWT–107), EPA Region 10,
1200 Sixth Avenue, Seattle,
Washington, 98101, (206) 553–6706.
SUPPLEMENTARY INFORMATION:
Table of Contents
The Environmental Protection
Agency (EPA or Agency) is taking final
action to approve a PM10 State
Implementation Plan (SIP) maintenance
plan revision for the Wallula,
Washington nonattainment area and to
redesignate the area from nonattainment
to attainment. PM10 air pollution is
suspended particulate matter with a
nominal diameter less than or equal to
a nominal ten micromenters. We are
approving the maintenance plan
revision and redesignation request
because the State has adequately
demonstrated that the control measures
being implemented in the Wallula area
will result in maintenance of the PM10
National Ambient Air Quality Standards
and that all other requirements of the
Clean Air Act for redesignation to
attainment have been met.
DATES: Effective September 26, 2005.
ADDRESSES: Copies of the State’s request
and other supporting information used
in developing this action are available
for inspection during normal business
SUMMARY:
VerDate Aug<18>2005
State
submittal/effective date
Applicable geographic or
nonattainment area
Name of SIP provision
I. What Is the Background of This
Rulemaking?
II. What Comments Did We Receive on the
Proposed Action?
III. What Is Our Final Action?
IV. Statutory and Executive Order Reviews
I. What Is the Background of This
Rulemaking?
On July 1, 2005, we proposed to
approve a State Implementation Plan
(SIP) maintenance plan revision and
redesignation request, dated March 29,
2005, from the Director of the
Washington State Department of
Ecology (Ecology) for the Wallula PM–
10 nonattainment area. 70 FR 38073. We
proposed our approval based on the
State’s demonstration that the control
measures being implemented in the
Wallula area would result in
maintenance of the PM10 National
Ambient Air Quality Standards and that
all other Clean Air Act requirements for
redesignation to attainment have been
met. See the proposed action for a full
description of how the maintenance
PO 00000
Frm 00064
Fmt 4700
Sfmt 4700
plan and redesignation request meet
Clean Air Act requirements.
II. What Comments Did We Receive on
the Proposed Action?
EPA provided a 30-day review and
comment period on the proposal
published in the Federal Register on
July 1, 2005 (70 FR 38073). We received
no comments on our proposed
rulemaking.
III. What Is Our Final Action?
We are taking final action to approve
the Wallula PM10 maintenance plan and
redesignate the Wallula nonattainment
area to attainment for PM10.
IV. 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
E:\FR\FM\26AUR1.SGM
26AUR1
Agencies
[Federal Register Volume 70, Number 165 (Friday, August 26, 2005)]
[Rules and Regulations]
[Pages 50208-50212]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 05-17030]
-----------------------------------------------------------------------
ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[TX 126-1-7690; FRL-7960-4]
Approval and Promulgation of Air Quality Implementation Plans;
Texas; Dallas-Fort Worth Voluntary Mobile Emission Reduction Program
AGENCY: Environmental Protection Agency (EPA).
ACTION: Final rule.
-----------------------------------------------------------------------
SUMMARY: EPA is approving a State Implementation Plan (SIP) revision
submitted by the State of Texas. This revision approves the Dallas-Fort
Worth (DFW) Voluntary Mobile Emission Reduction Program (VMEP) which is
relied upon to achieve the National Ambient Air Quality Standard
(NAAQS) for ozone in the DFW nonattainment area.
DATES: This rule is effective on September 26, 2005.
ADDRESSES: Copies of the documents relevant to this action are in the
official file which is available 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 or
Mr. Bill Deese at 214-665-7253 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 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.
Copies of any State submittals and EPA's technical support document
are also available for public inspection at the State Air Agency listed
below during official business hours by appointment: Texas Commission
on Environmental Quality, Office of Air Quality, 12124 Park 35 Circle,
Austin, Texas 78753.
FOR FURTHER INFORMATION CONTACT: Sandra Rennie, Air Planning Section
(6PD-L), Environmental Protection Agency, Region 6, 1445 Ross Avenue,
Suite 700, Dallas, Texas 75202-2733, telephone (214) 665-7367; fax
number 214-665-7263; e-mail address rennie.sandra@epa.gov.
SUPPLEMENTARY INFORMATION: Throughout this document wherever ``we,''
``us,'' or ``our'' is used, we mean the EPA.
Outline of Topics
I. What Action Is EPA Taking and Why?
II. What Are the Federal Requirements?
III. What Is the Background for This Action?
IV. What Did the State Submit?
V. What Does the DFW VMEP Include?
VI. What Comments Did EPA Receive in Response to the January 18,
2001, Proposed Rule?
VII. EPA's Final Rulemaking Action
VIII. Statutory and Executive Order Reviews
I. What Action Is EPA Taking and Why?
We are approving the DFW VMEP into the Texas SIP. We are taking
this action because the State submitted a SIP revision that relies on
the VMEP to achieve the NAAQS in the DFW ozone nonattainment area.
II. What Are the Federal Requirements?
Section 172 of the Act provides the general requirements for
nonattainment plans. Section 172(c)(6) and section 110 require SIPs to
include enforceable emission limitations, and such other control
measures, means or techniques as well as schedules and timetables for
compliance, as may be necessary to provide for attainment by the
applicable attainment date. Today's action involves approval of one of
a collection of controls adopted by the State to achieve the ozone
standard in the DFW nonattainment area as required under section 172.
EPA approval of this SIP revision is governed by section 110 of the
Act.
III. What Is the Background for This Action?
In the Federal Register published on January 18, 2001 (66 FR 4756)
we proposed to approve a Voluntary Mobile Emissions Reduction Program
(VMEP) in nine counties (including the DFW 4-county area) as local
initiatives. The counties are Collin, Dallas, Denton, and Tarrant along
with the surrounding counties of Ellis, Johnson, Kaufman, Parker, and
Rockwall.
Voluntary mobile source strategies that attempt to complement
existing regulatory programs through voluntary, non-regulatory changes
in local transportation activities or changes in in-use vehicle and
engine composition constitute the VMEP. EPA concludes that the Clean
Air Act allows SIP credit for new approaches to reducing mobile source
emissions. This flexible approach is consistent with section 110. Up to
3% of the total future year emissions reductions required to attain the
appropriate NAAQS may be claimed under the VMEP policy.\1\
---------------------------------------------------------------------------
\1\ Memorandum from Richard D. Wilson, Acting Assistant
Administrator for Air and Radiation, dated October 24, 1997,
entitled ``Guidance on Incorporating Voluntary Mobile Source
Emission Reduction Programs in State Implementation Plans (SIPs).''
---------------------------------------------------------------------------
Specifically, the guidance suggests key points be considered for
approval of credits. The credits should be quantifiable, surplus,
enforceable, permanent, and adequately supported. The State must timely
assess and backfill any shortfall pursuant to enforceable commitments
in the SIP in the event that the projected emission reductions are not
achieved. In addition, VMEPs must be consistent with attainment of the
standard and with the Rate of Progress requirements and not interfere
with other Clean Air Act requirements.
IV. What Did the State Submit?
The State submitted program descriptions that projected emission
reductions attributable to each specific voluntary program. These
program descriptions were included in the DFW 1-hour ozone SIP revision
submitted April 25, 2000.
V. What Does the DFW VMEP Include?
The following Table lists the programs and projected credits.
Programs submitted with no credit assigned are also listed.
Voluntary Mobile Emission Reduction Programs and Credits Claimed
------------------------------------------------------------------------
VOC benefits NOX benefits
Program type (tons per day) (tons per day)
------------------------------------------------------------------------
Alternative Fuel Program................ 0.18 0.18
Employee Trip Reduction................. 0.29 0.53
Public Education Campaign/Ozone Season 0.08 0.15
Fare Reduction.........................
[[Page 50209]]
Tier II Locomotive Engines.............. 0-0.6 0-3.0
Vehicle Retirement Program/Vehicle 0.56 0.77
Maintenance *..........................
Sustainable Development................. .............. ..............
Non-Road Ozone Season Reductions........ .............. ..............
Off-Road Heavy Duty Diesel Engine .............. ..............
Retrofits..............................
-----------------
Total Benefits (tpd)................ 1.11-1.71 1.63-4.63
------------------------------------------------------------------------
\*\Emission benefits quantified for the Vehicle Retirement Program only.
Emission benefits for Vehicle Maintenance are credited in the Vehicle
Inspection and Maintenance Program.
The State commits to evaluating each program to validate estimated
credits, to evaluating and reporting on the program implementation and
results, and to timely remedy any credit shortfall. The State also
commits to additional Transportation Control Measures (TCMs) that can
be substituted for any shortfall in credit from the estimated credits
for VMEP. These include Signal Improvements and Freeway Corridor
Management.
EPA's analysis of all the VMEP measures shows that each creditable
measure could be quantified. The reductions are surplus by not being
substitutes for mandatory, required emission reductions. The SIP with
voluntary measures is enforceable because the state has committed to
fill any shortfall in credit, thus any enforcement will be against the
State. The reductions will continue at least for as long as the time
period in which they are used by a SIP demonstration, so they are
considered permanent. Each measure is adequately supported by personnel
and program resources for implementation. The State's goal is 5.0 tons
per day of NOX benefit from the VMEP program.
VI. What Comments Did EPA Receive in Response to the January 18, 2001,
Proposed Rule?
Comments were submitted by the Natural Resources Defense Council
(NRDC).
Comment: The NRDC supports the objectives of the voluntary
initiatives identified in the proposal. They hope that greater
employment of these measures will promote greater public awareness of
the area's severe air pollution problems and that these measures will
bring about emissions reductions that will lead to healthy air.
Response: We appreciate the positive comments about the voluntary
initiatives in the VMEP.
Comment: EPA's VMEP guidance document is not consistent with the
Clean Air Act (CAA).
Response: In the final decision on October 28, 2003, by the United
States Court of Appeals, Fifth Circuit, the Court said EPA's VMEP
policy is a reasonable interpretation of the statute. [See BCCA Appeal
Group v. EPA, 355 F.3 817 (5th Cir. 2003)]. EPA determined and the
Court agreed, ``* * * that Texas had made the required commitments to
monitor, assess, report, and remedy any credit shortfall from the VMEP
measures in accordance with EPA guidance and that these commitments
satisfied the enforceability requirements of the CAA.'' Id, at 847.
Therefore, the VMEP guidance, which is part of the VMEP policy is
consistent with the CAA.
Comment: EPA's proposed approval of VMEP Measures for SIP credit is
unlawful. The identified voluntary measures, or any voluntary measures
do not provide the certainty, enforceability, quantifiability,
replicability, permanency, and accountability required for SIP
attainment demonstrations.
Response: EPA disagrees with the comment, and continues to believe
that the voluntary measures proposed by Texas for inclusion in the SIP
are approvable under the Act. EPA acknowledges that by themselves the
measures would not be approvable, because as noted by the commenter
they are not enforceable against the entities producing the emissions
reductions and thus do not meet the enforceability requirement of
section 110(a)(2)(A). However, EPA did not propose to approve the
measures by themselves. EPA proposed to approve them only in
conjunction with an enforceable commitment by the state of Texas to
monitor implementation of the voluntary measures, determine whether the
anticipated reductions from the measures were in fact achieved, and if
not to either alter the program such that the requisite reductions will
be achieved, adopt substitute measures, or demonstrate that the
attainment and maintenance goals of the ozone SIP can still be met
without the reductions from these measures. Thus, EPA did not propose
to approve voluntary measures as satisfying the enforceability
requirements of section 110. Rather, EPA proposed to approve the
voluntary programs into the SIP as part of the overall attainment plan,
and proposed to approve the state's enforceable commitment to monitor,
assess, and rectify any shortfall as meeting the enforceability
requirements of the Act.
EPA continues to believe that this approach is a proper means of
encouraging implementation of innovative mobile source control measures
while providing an enforceable SIP backstop measure. Ideally, the
voluntary measures will produce the estimated emissions reductions
without need for any state backfill or Federal or citizen enforcement.
However, should any shortfall result, Texas will be bound by the
enforceable SIP commitment to rectify the problem and supply the
necessary emissions reductions. Both EPA and private citizens retain
all of their rights under sections 113 and 304 to bring appropriate
enforcement pressure to bear against the state should Texas fail to
monitor, assess or fill any shortfall in emissions reductions resulting
from implementation of the voluntary measures in the SIP. Contrary to
the commenter's allegations, the emissions reductions associated with
the voluntary measures in the Dallas SIP are required to be achieved;
it is however the state and not the individuals implementing the
voluntary measures who must ultimately produce them.
Comment: The commenter raises numerous arguments concerning the
unenforceability of the voluntary measures, which will be addressed
below. However, the commenter makes no mention of the enforceable State
commitment other than to refer to it as insufficient. This statement
without further explanation does not give EPA any guidance on the
alleged inadequacy
[[Page 50210]]
of the commitment nor how the commenter would have EPA improve upon it.
Response: EPA continues to maintain that the commitment is
approvable as meeting the enforceability requirements of the Act. In
the past, EPA has often approved enforceable state commitments to take
future actions under the SIP, and these actions have been enforced by
courts against states that have failed to comply with those
commitments. See, Trustees for Alaska v. Fink, 17 F.3d 1209 (9th Cir.
1994); Coalition Against Columbus Center v. City of New York, 967 F.2d
764 (2d Cir. 1992); Citizens for a Better Environment v. Deukmejian,
731 F.Supp. 1448, reconsideration granted in part, 746 F.Supp. 976
(N.D. Cal. 1990); American Lung Ass'n of New Jersey v. Keane, 871 F.2d
319 (3d Cir. 1989); NRDC v. New York State Department of Environmental
Conservation, 668 F.Supp. 848 (S.D.N.Y. 1987); Council of Commuter
Organizations v. Gorsuch, 683 F.2d 648 (2d Cir. 1982) and Friends of
the Earth v. EPA, 499 F.2d.-1118 (2d Cir. 1974) . EPA believes that the
Texas commitments associated with the voluntary measures portion of the
SIP are similarly enforceable and thus approvable.
Comment: The commenter alleges that the Act requires all control
measures to be enforceable against individual polluters and not just
against states.
Response: Many mobile source control measures are enforceable only
against the state or local transit operator, and not the individual
entities actually producing the emissions reductions, e.g., state
obligations to establish vehicle inspection and maintenance programs or
to purchase buses or expand transit systems. The Clean Air Act does not
require Federal enforcement capability against individual vehicle
owners or transit users prior to approval of such programs into the
SIP.\2\
---------------------------------------------------------------------------
\2\ The Act does require that enhanced I/M programs include
state enforcement through denial of vehicle registration without
proof of compliance with inspection requirements. However, the
enforceable SIP requirement is to develop a program that includes
registration denial, and any enforcement would be against the state
for failing to deny registration. The Act does not contemplate
enforcement actions against individual vehicle owners attempting to
register their vehicles.
---------------------------------------------------------------------------
Comment: The commenter alleges that the public cannot adequately
monitor implementation of the voluntary measures nor determine whether
the emissions reductions are achieved.
Response: Texas is required by its enforceable commitment to do
just that, and will make such assessments available to the public in
the normal course of administrative practice. The VMEP measures adopted
by the state covering the Dallas-Fort Worth nonattainment area are
available to the public on the agency's Web site. Citizens may check on
the measures enacted by the TCEQ at the following link: https://
www.tnrcc.state.tx.us/oprd/sips/sipdfw.html.
Paper copies are also available upon request by contacting Ms.
Kelly Keel of the Air Quality Planning and Implementation Division at
the TCEQ's Chief Engineer's Office. Ms Keel may be reached at 512-239-
3607 or kkeel@tceq.state.tx.us.
Because VMEP measures are local initiatives, citizens may check on
the implemenation of each measure by contacting the region's
transportation planners, the North Central Texas Council of Governments
(NCTCOG). VMEP measures are proposed and implemented by local sponsors.
Comment: The commenter also claims that the state itself has raised
concerns about the emissions reductions that will be achieved from
these measures.
Response: Such concerns may be valid, but notwithstanding Texas has
made a commitment to fill any shortfall in emissions, which both EPA
and citizens can enforce under the Act. The State relies on reports
from the NCTCOG regarding implementation of each VMEP measure. The TCEQ
has received no reports from the NCTCOG regarding problems with
implementing the VMEP measures enacted in the SIP. Therefore, the State
does not believe there is a gap that needs to be backfilled with other
emission reduction measures.
Comment: The commenter makes various arguments about the
unacceptability of the voluntary measures program stemming from the
stationary source permitting program under Title V of the Act.
Response: Title V is totally irrelevant to these mobile source
programs. The voluntary measures program Texas has included in the
Dallas SIP applies only to mobile sources that are not subject to
regulation under the Title V stationary source permitting program.
Comment: The commenter also argues that EPA can not alter its past
interpretations without completing notice-and-comment rulemaking.
Response: EPA believes that this action is consistent with its past
interpretations that enforceable state commitments to take future
action are approvable SIP measures. For example, see EPA actions
approving California plans at 62 FR 1150 ( January 8, 1997) and 65 FR
18903 (April 10, 2000), and the Houston Attainment Demonstration at 66
FR 57160 (November 14, 2001). In addition, this action is consistent
with the guidance cited in section IV of this document that EPA issued
in 1997 indicating its belief that voluntary programs could be approved
in conjunction with enforceable state commitments to fill any resultant
shortfall. The individual SIP approval actions implementing the VMEP
guidance constitute the notice-and-comment rulemaking required to
effectuate action under the guidance. Thus, this SIP rulemaking
satisfies both CAA and APA rulemaking requirements with respect to
final interpretations of the Act consistent with the guidance.
Comment: The commenter alleges that EPA may not alter
interpretations of the Administrator through SIP rulemaking signed by
the Regional Administrator.
Response: The Administrator has properly delegated the authority
for SIP rulemakings to the Regional Administrators under Delegation 7-
10 dated May 6, 1997, and section 301(a)(1) of the Act. Thus, the
Regional Administrators are authorized to act for the Administrator
with respect to all matters pertaining to SIP approvals, including
interpretations of the Act relevant to a given SIP approval.
Additionally, as we stated in the previous response, this action is
consistent with EPA's past interpretations that enforceable state
commitments to take future action are approvable SIP measures.
Compliance with voluntary programs is ensured through the enforceable
state commitments to fill any resultant shortfall.
Comment: The commenter questions the 3% limit on voluntary
measures, arguing that this limit itself implicitly acknowledges that
such measures are not approvable.
Response: EPA did not impose the 3% limit because it believed the
measures to be suspect, but rather, as noted in the VMEP guidance,
based this decision on the innovative nature of the measures and the
agency's lack of experience both with implementation and calculating
appropriate credit for such measures. Therefore, EPA created the 3%
limit as a policy matter, indicating in the guidance that it did not
think it would be appropriate to approve a greater percentage while the
agency begins to implement the program. EPA further indicated that it
would reassess the limit after several years of experience with the
program. Since all VMEP measures would be approved only with enfoceable
state commitments to fill any resultant shortfall, EPA felt confident
that including voluntary programs up to 3% of required emissions
reductions in SIPs would not jeopardize attainment
[[Page 50211]]
and maintenance goals during initial implementation under the policy.
Further, EPA did not indicate that 3% of required emissions reductions
could be considered de minimis, as the commenter implies. EPA agrees
with the commenter that it should not conclude in advance that any
given percentage of emissions reduction could be considered per se de
minimis for all areas and types of SIPs. Any conclusion about the de
minimis nature of required emission reductions should be made in light
of the specific circumstances of the areas and CAA requirements at
issue. Therefore, all of the commenter's arguments relating to the
availability of a de minimis exemption and the need for notice-and-
comment rulemaking to effectuate it are not relevant to EPA's approval
of the voluntary measures in the Dallas SIP.
Comment: NRDC claims the record is insufficient to support our
credit claims.
Response: EPA reviewed the documentation for each measure of the
VMEP. We found that for each measure the documentation was acceptable
to demonstrate that the criteria for approval were met. For each
measure the State was able to show that the measure plus the State
commitment was quantifiable, surplus, enforceable, permanent, and
adequately supported. In addition this SIP contained a firm commitment
to cover any shortfall by supplementing additional TCMs that are in
addition to those already credited to the SIP.
Comment: In its conclusion the commenter refers in passing to
delays that may result from identifying and rectifying emissions
shortfalls.
Response: EPA acknowledges that reductions will be somewhat delayed
where states must first monitor and assess implementation and
subsequently implement corrections. For this reason EPA indicated in
the VMEP guidance that states should fill any shortfalls in a timely
fashion. EPA issued a companion voluntary measures policy for
stationary sources.\3\ In that policy EPA indicated that where
voluntary measures were included in attainment or rate of progress
SIPs, any shortfalls would have to be filled prior to the relevant
attainment or progress milestone date. EPA believes this is an
appropriate interpretation of the requirement to fill shortfalls in a
timely fashion under the VMEP policy. Similarly, the same process is
described in the recently issued umbrella policy for use of voluntary
measures in SIPs.\4\
---------------------------------------------------------------------------
\3\ Memorandum from John Seitz, Director, Office of Air Quality
Planning and Standards, dated January 19, 2001, entitled
``Stationary Source Voluntary Measures Final Policy.''
\4\ ``Incorporating Voluntary Measures in a State Implementation
Plan,'' September 2004.
---------------------------------------------------------------------------
VII. EPA's Final Rulemaking Action
The DFW VMEP meets the criteria for credit in the SIP. The State
has shown that the credits are quantifiable, surplus, enforceable,
permanent, adequately supported, and consistent with the SIP and the
Act. We are granting final approval of the VMEP into the DFW SIP.
VIII. 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 October 25, 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).)
[[Page 50212]]
List of Subjects in 40 CFR Part 52
Environmental protection, Air pollution control, Carbon monoxide,
Incorporation by reference, Intergovernmental relations, Lead, Nitrogen
dioxide, Ozone, Reporting and recordkeeping requirements, Volatile
organic compounds.
Dated: August 12, 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 SS--Texas
0
2. In Sec. 52.2270, the table in paragraph (e) entitled ``EPA Approved
Nonregulatory Provisions and Quasi-Regulatory Measures in the Texas
SIP'' is amended by adding one new entry to the end of the table to
read as follows:
Sec. 52.2270 Identification of plan.
* * * * *
(e) * * *
EPA Approved Nonregulatory Provisions and Quasi-Regulatory Measures in the Texas SIP
----------------------------------------------------------------------------------------------------------------
State
Applicable geographic submittal/
Name of SIP provision or nonattainment area effective EPA approval date Comments
date
----------------------------------------------------------------------------------------------------------------
* * * * * * *
Voluntary Mobile Emission Dallas/Fort Worth, TX.. 4/25/00 8/26/05, [Insert FR .................
Program. page number where
document begins].
----------------------------------------------------------------------------------------------------------------
[FR Doc. 05-17030 Filed 8-25-05; 8:45 am]
BILLING CODE 6560-50-P