Approval and Promulgation of Implementation Plans; California; 2007 South Coast PM2.5, 41562-41584 [2011-17229]

Agencies

• ENVIRONMENTAL PROTECTION AGENCY

[Federal Register Volume 76, Number 135 (Thursday, July 14, 2011)]
[Proposed Rules]
[Pages 41562-41584]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2011-17229]



[[Page 41561]]

Vol. 76

Thursday,

No. 135

July 14, 2011

Part II





Environmental Protection Agency





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40 CFR Part 52





Approval and Promulgation of Implementation Plans; California; 2007 
South Coast PM2.5 Plan and 2007 State Strategy; Proposed Rules

Federal Register / Vol. 76 , No. 135 / Thursday, July 14, 2011 / 
Proposed Rules

[[Page 41562]]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R09-OAR-2009-0366; FRL-9435-1]


Approval and Promulgation of Implementation Plans; California; 
2007 South Coast PM2.5 Plan and 2007 State Strategy

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: EPA is proposing to approve in part and disapprove in part 
state implementation plan (SIP) revisions submitted by California to 
provide for attainment of the 1997 fine particulate matter 
(PM2.5) national ambient air quality standards in the Los 
Angeles-South Coast area (South Coast). These SIP revisions are the 
South Coast 2007 Air Quality Management Plan (South Coast 2007 AQMP) 
(revised 2011) and South Coast-related provisions of the 2007 State 
Strategy (revised 2009 and 2011). EPA is proposing to approve the 
emissions inventories; air quality modeling; reasonably available 
control measures/reasonably available control technology demonstration; 
the reasonable further progress and attainment demonstrations; and the 
transportation conformity motor vehicle emissions budgets. EPA is also 
proposing to grant California's request to extend the attainment 
deadline for the South Coast to April 5, 2015 and to approve 
commitments to measures and reductions by the South Coast Air Quality 
Management District and the California Air Resources Board. Finally, we 
are proposing to disapprove the SIP's contingency measures and to 
reject the assignment of 10 tpd of NOX reductions to the 
federal government. This proposed rule amends EPA's November 22, 2010 
proposed rule (75 FR 91294) on the South Coast PM2.5 plan 
and 2007 State strategy.

DATES: Any comments must arrive by August 15, 2011.

ADDRESSES: Submit comments, identified by docket number EPA-R09-OAR-
2009-0366, by one of the following methods:
     Federal eRulemaking Portal: https://www.regulations.gov. 
Follow the online instructions.
     E-mail: tax.wienke@epa.gov.
     Mail or deliver: Marty Robin, Office of Air Planning (AIR-
2), U.S. Environmental Protection Agency Region 9, 75 Hawthorne Street, 
San Francisco, CA 94105.
    Instructions: All comments will be included in the public docket 
without change and may be made available online at https://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 https://www.regulations.gov or e-mail. The https://www.regulations.gov Web site 
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 comments due to technical difficulties and 
cannot contact you for clarification, EPA may not be able to consider 
your comment.
    Docket: The index to the docket for this action is available 
electronically on the https://www.regulations.gov Web site and in hard 
copy at EPA Region 9, 75 Hawthorne Street, San Francisco, California, 
94105. 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 at 
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 below.
    Copies of the SIP materials are also available for inspection at 
the following locations:
     California Air Resources Board, 1001 I Street, Sacramento, 
California 95812, and
     South Coast Air Quality Management District, 21865 E. 
Copley Drive, Diamond Bar, California 91765.

The SIP materials are also electronically available at: https://aqmd.gov/aqmp/07aqmp/ and https://www.arb.ca.gov/planning/sip/sip.htm.

FOR FURTHER INFORMATION CONTACT: Wienke Tax, Air Planning Office (AIR-
2), U.S. Environmental Protection Agency, Region 9, (415) 947-4192, 
tax.wienke@epa.gov.

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

Table of Contents

I. The PM2.5 NAAQS and the South Coast PM2.5 
Nonattainment Area
II. California's State Implementation Plan Submittals to Address 
PM2.5 Attainment in the South Coast Nonattainment Area
    A. California's SIP Submittals
    1. 2007 South Coast AQMP
    2. CARB 2007 State Strategy
    3. CARB 2009 State Strategy Status Report
    4. Additional 2008 SIP Submittal Related to Motor Vehicle 
Emissions Budgets
    5. CARB 2011 Progress Report
    6. Revisions to the 2007 PM2.5 and Ozone State 
Implementation Plan for South Coast Air Basin and Coachella Valley
    B. CAA Procedural Requirements for SIP Submittals
III. EPA's 2010 Proposed Action on the South Coast PM2.5 
SIP
IV. CAA and Regulatory Requirements for PM2.5 Attainment 
SIPs
V. Review of the South Coast 2007 AQMP and the South Coast Portion 
of the Revised 2007 State Strategy
    A. Emission Inventories
    1. Requirements for Emission Inventories
    2. Emission Inventories in the South Coast 2007 AQMP
    3. Proposed Action on the Emission Inventories
    B. Reasonably Available Control Measures (RACM)/Reasonably 
Available Control Technology (RACT) and Adopted Control Strategy
    1. Requirement for RACM/RACT
    2. RACM/RACT Demonstration in the South Coast 2007 AQMP and the 
2007 State Strategy
    a. District's RACM/RACT Analysis and Adopted Control Strategy
    b. CARB's RACM Analysis and Adopted Control Strategy
    c. The Local Jurisdiction's RACM Analysis
    3. Proposed Actions on RACM/RACT Demonstration and Adopted 
Control Strategy
    C. Attainment Demonstration
    1. Requirements for Attainment Demonstration
    2. Air Quality Modeling in the South Coast 2007 AQMP
    3. PM2.5 Precursors Addressed in the South Coast 2007 
AQMP
    4. Extension of the Attainment Date
    5. Attainment Demonstration
    a. Enforceable Commitments
    i. The Commitment Represents a Limited Portion of Required 
Reductions
    ii. The State Is Capable of Fulfilling Its Commitment
    iii. The Commitment Is for a Reasonable and Appropriate Period 
of Time
    b. Federal Reductions
    6. Proposed Action on the Attainment Demonstration
    D. Reasonable Further Progress Demonstration
    1. Requirements for Reasonable Further Progress
    2. Reasonable Further Progress Demonstration in the South Coast 
2007 AQMP
    3. Proposed Action on the RFP Demonstration
    E. Contingency Measures
    1. Requirements for Contingency Measures
    2. Contingency Measures in the South Coast 2007 AQMP
    3. Proposed Action on the Contingency Measures
    F. Motor Vehicle Emissions Budgets for Transportation Conformity

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    1. Requirements for Transportation Conformity
    2. Budgets in the South Coast 2007 AQMP and Additional 2008 
Submittal
    3. EPA's 2008 Adequacy/Inadequacy Finding
    4. Updated Motor Vehicle Emissions Budgets in the 2011 Progress 
Report and Additional Revisions
    5. Proposed Action on the Revised Updated Budgets in the 2011 
Progress Report
    6. Proposed Action on the Trading Mechanism
VI. EPA's Proposed Actions and Consequences
    A. EPA's Proposed Approvals and Disapprovals
    B. CAA Consequences of a Final Disapproval
VII. Statutory and Executive Order Reviews

I. The PM2.5 NAAQS and the South Coast PM2.5 
Nonattainment Area

    On July 18, 1997 (62 FR 36852), EPA established new national 
ambient air quality standards (NAAQS) for PM2.5, particulate 
matter with a diameter of 2.5 microns or less, including annual 
standards of 15.0 micrograms per cubic meter ([mu]g/m\3\) based on a 3-
year average of annual mean PM2.5 concentrations, and 24-
hour (daily) standards of 65 [mu]g/m\3\ based on a 3-year average of 
the 98th percentile of 24-hour concentrations. 40 CFR 50.7 EPA 
established the standards based on substantial evidence from numerous 
health studies demonstrating that serious health effects are associated 
with exposures to PM2.5 concentrations above the levels of 
these standards.
    Epidemiological studies have shown statistically significant 
correlations between elevated PM2.5 levels and premature 
mortality. Other important health effects associated with 
PM2.5 exposure include aggravation of respiratory and 
cardiovascular disease (as indicated by increased hospital admissions, 
emergency room visits, absences from school or work, and restricted 
activity days), changes in lung function and increased respiratory 
symptoms, as well as new evidence for more subtle indicators of 
cardiovascular health. Individuals particularly sensitive to 
PM2.5 exposure include older adults, people with heart and 
lung disease, and children. See, EPA, Air Quality Criteria for 
Particulate Matter, No. EPA/600/P-99/002aF and EPA/600/P-99/002bF, 
October 2004.
    PM2.5 can be emitted directly into the atmosphere as a 
solid or liquid particle (``primary'' or ``direct PM2.5'') 
or can be formed in the atmosphere as a result of various chemical 
reactions from precursor emissions of nitrogen oxides (NOX), 
sulfur oxides (SOX), volatile organic compounds (VOC) and 
ammonia (NH3) (``secondary PM2.5''). See 72 FR 
20586, 20589 (April 25, 2007).
    Following promulgation of a new or revised NAAQS, EPA is required 
by Clean Air Act (CAA) section 107(d) to designate areas throughout the 
United States as attaining or not attaining the NAAQS. On January 5, 
2005, EPA published initial air quality designations for the 1997 
PM2.5 NAAQS, based on air quality monitoring data for three-
year periods of 2001-2003 or 2002-2004 (70 FR 944). These designations 
became effective on April 5, 2005.
    EPA designated the ``Los Angeles-South Coast Air Basin'' area 
(South Coast nonattainment area), including Orange County, the 
southwestern two-thirds of Los Angeles County, southwestern San 
Bernardino County, and western Riverside County as nonattainment for 
both the 1997 24-hour and the annual PM2.5 standards. The 
South Coast PM2.5 nonattainment area is home to about 17 
million people, has a diverse economic base, and contains one of the 
highest-volume port areas in the world. For a precise description of 
the geographic boundaries of the South Coast PM2.5 
nonattainment area, see 40 CFR 81.305.\1\ The local air district with 
primary responsibility for developing a plan to attain the 
PM2.5 NAAQS in this area is the South Coast Air Quality 
Management District (District or SCAQMD).
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    \1\ On October 17, 2006, EPA strengthened the 24-hour 
PM2.5 NAAQS by lowering the level to 35 [mu]g/m\3\. At 
the same time, we retained the level of the annual PM2.5 
standard at 15.0 [mu]g/m\3\. 71 FR 61144. On November 13, 2009, EPA 
designated areas, including the South Coast, with respect to the 
revised 24-hour NAAQS. 74 FR 58688. California is now required to 
submit an attainment plan for the 35 [mu]g/m\3\ standards by 
December 14, 2012. In this preamble, all references to the 
PM2.5 NAAQS, unless otherwise specified, are to the 1997 
24-hour PM2.5 standards of 65 [mu]g/m\3\ and annual 
standards of 15 [mu]g/m\3\ as codified in 40 CFR 50.7.
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    Ambient 24-hour PM2.5 levels in the South Coast are well 
below the 1997 PM2.5 NAAQS. Ambient annual PM2.5 
levels are improving but are still above the federal NAAQS. The design 
value monitor at Mira Loma recorded a value of 16.8 [mu]g/m\3\ for the 
2008-2010 period.\2\ In the South Coast, the levels and composition of 
PM2.5 differ by geographic location, with higher 
PM2.5 concentrations typically occurring in metropolitan Los 
Angeles and in the inland valley areas of San Bernardino and 
metropolitan Riverside Counties. The higher PM2.5 
concentrations in Los Angeles County are mainly due to secondary 
formation of particulates. See South Coast 2007 AQMP, page 2-13.
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    \2\ See the Air Quality Subsystem (AQS) Preliminary Design Value 
Report dated April 21, 2011 in the docket for today's action. 16.8 
[mu]g/m\3\ is the highest design value in the South Coast 
nonattainment area. The design value is the three year average of 
annual means of a single monitoring site. (see 40 CFR 50 Appendix N 
Section 1(c)(1)). This design value is based on 2008 and 2009 data 
that are complete, validated, and certified by the District and on 
2010 data that are complete and validated but not yet certified by 
the District.
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II. California's State Implementation Plan Submittals To Address 
PM2.5 Attainment in the South Coast Nonattainment Area

A. California's SIP Submittals

    Designation of an area as nonattainment starts the process for a 
state to develop and submit to EPA a State Implementation plan (SIP) 
under title 1, part D of the CAA. This SIP must include, among other 
things, a demonstration of how the NAAQS will be attained in the 
nonattainment area as expeditiously as practicable, but no later than 
the date required by the CAA. Under CAA section 172(b), a State has up 
to three years after an area's designation to nonattainment to submit 
its SIP to EPA. For the 1997 PM2.5 NAAQS, these 
nonattainment SIPs were due no later than April 5, 2008.
    California has made six SIP submittals to address PM2.5 
nonattainment in the South Coast nonattainment area. The two principal 
ones are the District's 2007 PM2.5 Plan (South Coast 2007 
AQMP) and the CARB's State Strategy for California's 2007 State 
Implementation Plan (2007 State Strategy).
    In addition to these submittals, the District and State have also 
submitted numerous rules that contribute to improving air quality in 
the South Coast nonattainment area. See Appendices A and B of the 
technical support document (TSD) for this proposal.
1. 2007 South Coast AQMP
    On November 28, 2007, the California Air Resources Board (CARB or 
State) submitted the ``Final 2007 Air Quality Management Plan, June 
2007.'' \3\ This

[[Page 41564]]

Plan was adopted by the District on June 1, 2007 and submitted to CARB 
on October 24, 2007.\4\ The South Coast 2007 AQMP includes a 
PM2.5 attainment demonstration for the South Coast. In order 
to meet relevant CAA requirements for the PM2.5 NAAQS, the 
South Coast 2007 AQMP includes base and projected year PM2.5 
emissions inventories for the South Coast nonattainment area; air 
quality monitoring data; short-, medium- and long-term District control 
measures; a summary of CARB's control measures; transportation control 
measures (TCMs); a demonstration of reasonable further progress (RFP); 
a modeled attainment demonstration; a demonstration of reasonably 
available control measures/reasonably available control technology 
(RACM/RACT); contingency measures for the 1997 PM2.5 RFP and 
for attainment for the South Coast PM2.5 nonattainment area; 
and a request to extend the attainment date for the 1997 
PM2.5 NAAQS to April 5, 2015, although all controls 
necessary for attainment by that date will be in place by the 
attainment year of 2014.\5\ The South Coast 2007 AQMP submittal also 
includes District Governing Board Resolution 07-9 adopting the final 
South Coast 2007 AQMP.
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    \3\ The South Coast 2007 AQMP is the first South Coast Plan to 
address PM2.5. We have previously acted on numerous South 
Coast air quality plans for ozone, PM-10, carbon monoxide, and 
NO2, such as the 1997/1999 AQMP. We approved the ozone 
portion of the 1997 South Coast AQMP, as amended in 1999, on April 
10, 2000 (see 65 FR 18903). Our most recent action on a SIP 
addressing the CAA requirements for the South Coast ozone 
nonattainment area was our partial approval and partial disapproval 
of the 2003 AQMP (see 74 FR 10176, March 10, 2009). Our 2009 final 
action was challenged in the Ninth Circuit Court of Appeals, which 
published an opinion remanding certain aspects of EPA's action for 
further action consistent with the opinion. See Association of 
Irritated Residents v. EPA, 632 F.3d 584 (9th Cir. 2011). The issues 
in dispute relate to the consequences of an EPA disapproval of a SIP 
submittal, the adequacy of EPA's evaluation of a particular control 
measure from the 2003 State Strategy, and the rationale for EPA's 
approval of the State's submittal as meeting the requirements of CAA 
section 182(d)(1)(A) (TCMs to offset growth in emissions from growth 
in VMT) in the South Coast. EPA has sought rehearing on some of the 
issues, and the mandate in this case has not yet been issued pending 
action by the court on the petition for rehearing.
    \4\ See letter, James N. Goldstene, Executive Officer, CARB, to 
Jared Blumenfeld, Regional Administrator, EPA Region 9, September 
15, 2010, with enclosures.
    \5\ While the applicable attainment date for PM2.5 
areas with a full five-year extension is April 5, 2015, reductions 
must be implemented by 2014 to achieve attainment by that date. See 
40 CFR 51.1007(b). We, therefore, refer to 2014 as the attainment 
year and April 5, 2015 as the attainment date.
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2. CARB 2007 State Strategy
    To demonstrate attainment, the South Coast 2007 AQMP relies in part 
on measures in the 2007 State Strategy. The 2007 State Strategy was 
adopted on September 27, 2007 and submitted to EPA on November 16, 
2007.\6\ It discusses CARB's overall approach to addressing, in 
conjunction with local plans, attainment of both the 1997 
PM2.5 and 8-hour ozone NAAQS not only in the South Coast 
nonattainment area but also in California's other nonattainment areas 
such as the San Joaquin Valley and the Sacramento area. It also 
includes CARB's commitments to propose 15 defined State measures \7\ 
and to obtain specific amounts of aggregate emissions reductions of 
direct PM2.5, NOX, VOC and SOX in the 
South Coast from sources under the State's jurisdiction, primarily on- 
and off-road motor vehicles and engines.
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    \6\ See CARB Resolution No. 07-28, September 27, 2007 with 
attachments and letter from James N. Goldstene, Executive Officer, 
CARB, to Wayne Nastri, Regional Administrator, EPA Region 9, 
November 16, 2007 with enclosures.
    \7\ The 2007 State Strategy also includes measures to be 
implemented by the California Bureau of Automotive Repair (Smog 
Check improvements) and the California Department of Pesticide 
Regulation (VOC reductions from pesticide use). See 2007 State 
Strategy, p. 64-65 and CARB Resolution 7-28, Attachment B, p. 8.
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3. CARB 2009 State Strategy Status Report
    On August 12, 2009, CARB submitted the ``Status Report on the State 
Strategy for California's 2007 State Implementation Plan (SIP) and 
Proposed Revision to the SIP Reflecting Implementation of the 2007 
State Strategy'', dated March 24, 2009, adopted April 24, 2009 (``2009 
State Strategy Status Report''),\8\ which updates the 2007 State 
Strategy to reflect its implementation during 2007 and 2008.
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    \8\ See CARB Resolution No. 09-34, April 24, 2009 and letter, 
James N. Goldstene, Executive Officer, CARB to Wayne Nastri, 
Regional Administrator, EPA Region 9, August 12, 2009 with 
enclosures. Only pages 11-27 of the 2009 State Strategy Status 
Report are submitted as a SIP revision. The balance of the report is 
for informational purposes only. See Attachment A to CARB Resolution 
No. 09-34.
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    In today's proposal, we are evaluating only those portions of the 
South Coast 2007 AQMP and 2007 State Strategy and its revisions 
(including the 2011 revisions described below) that are relevant for 
attainment of the 1997 PM2.5 standards in the South Coast 
nonattainment area.
4. Additional 2008 SIP Submittal Related to Motor Vehicle Emissions 
Budgets
    In addition to the SIP submittals for the 1997 PM2.5 
NAAQS mentioned above, on April 4, 2008, the District Governing Board 
approved an alternative approach for transportation conformity motor 
vehicle emission budgets for the South Coast nonattainment area. This 
new approach was based on the 2007 SIP baseline emissions reflecting 
only the regulations adopted as of October 2006 for all milestone years 
up to the attainment year. The CARB Governing Board approved Resolution 
08-27 itemizing the modifications to the South Coast nonattainment area 
transportation conformity emission budgets. The revised motor vehicle 
emissions budgets were submitted as an amendment to the California SIP 
on April 30, 2008 and were amended as part of the 2011 Progress Report 
discussed below. We are acting on the budgets as amended in 2011 today.
5. CARB 2011 Progress Report
    On May 18, 2011, CARB submitted the ``Progress Report on 
Implementation of PM2.5 State Implementation Plans (SIP) for 
the South Coast and San Joaquin Valley Air Basins and Proposed SIP 
Revisions'', dated March 29, 2011, and adopted April 28, 2011 (``2011 
Progress Report'').\9\ This submittal, which updates both the 2007 
State Strategy and the South Coast 2007 AQMP, shows that both CARB and 
the District have made significant progress in meeting their 
commitments to adopt measures and to reduce emissions. More 
specifically, it updates CARB's rulemaking calendar in the 2007 State 
Strategy to reflect the current status of CARB's adopted 
PM2.5 measures and to change the expected action dates for 
several measures. It also updates the RFP demonstration, contingency 
measures, and transportation conformity motor vehicle emissions budgets 
in the South Coast 2007 AQMP to reflect rule adoption, changes to 
activity and emissions factors for certain source categories, and the 
impact on projected emissions levels in the South Coast nonattainment 
area of the recent economic recession.\10\
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    \9\ See CARB Board Resolution 11-24, May 18, 2011 and letter, 
James N. Goldstene, Executive Officer, CARB to Jared Blumenfeld, 
Regional Administrator, EPA Region 9, May 19, 2011 with enclosures. 
Only Appendices B, C and D of the 2011 Progress Report are submitted 
as a SIP revision. The balance of the report is for informational 
purposes only.
    \10\ On June 20, 2011, CARB posted to its Web site technical 
revisions to the updated motor vehicle emissions budgets (budgets) 
in the 2011 Progress Report. See https://www.arb.ca.gov/planning/sip/2007sip/2007sip.htm. We discuss these revisions in the section on 
budgets below.
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6. Revisions to the 2007 PM2.5 and Ozone State 
Implementation Plan for South Coast Air Basin and Coachella Valley
    Also, on May 19, 2011, CARB submitted a SIP revision entitled 
``Revisions to the 2007 PM2.5 and Ozone State Implementation 
Plan for South Coast Air Basin and Coachella Valley (SIP Revisions)''. 
These SIP revisions provide revised control measure commitments, a 
revised rule implementation schedule, and a partial backstop for the 10 
tpd NOX federal assignment for the South Coast 2007 
AQMP.\11\ For the purposes of today's

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proposal, we will refer to this SIP revision as ``2011 Progress Report, 
Appendix F'', since it was included as an Appendix to the 2011 Progress 
Report submitted on May 18, 2011.
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    \11\ See letter, Lynn Terry, Deputy Executive Officer, CARB, to 
Jared Blumenfeld, Regional Administrator, EPA Region 9, dated May 
19, 2011, and enclosed ARB Board Resolution 11-24.
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    In today's proposal, we are only evaluating those portions of the 
South Coast 2007 AQMP and the 2007 State Strategy and its revisions 
that are relevant for attainment of the PM2.5 standards in 
the South Coast nonattainment area.
    Future references in this proposal to the AQMP and the 2007 State 
Strategy will be to the AQMP as revised in 2011 and the Strategy as 
revised in 2009 and 2011, respectively, unless otherwise noted.

B. CAA Procedural Requirements for SIP Submittals

    CAA sections 110(a)(1) and (2) and 110(l) require a state to 
provide reasonable public notice and opportunity for public hearing 
prior to the adoption and submittal of a SIP or SIP revision. To meet 
this requirement, every SIP submittal should include evidence that 
adequate public notice was given and an opportunity for a public 
hearing was provided consistent with EPA's implementing regulations in 
40 CFR 51.102.
    Both the District and CARB have satisfied applicable statutory and 
regulatory requirements for reasonable public notice and hearing prior 
to adoption and submittal of the South Coast 2007 AQMP. The District 
conducted public workshops, provided public comment periods, and held 
public hearings prior to the adoption of the South Coast 2007 AQMP on 
June 1, 2007 (District Governing Board Resolution No. 07-9). CARB 
provided the required public notice and opportunity for public comment 
prior to its September 27, 2007 public hearing on the plan. See CARB 
Resolution No. 07-41.
    CARB conducted public workshops, provided public comment periods, 
and held a public hearing prior to the adoption of the 2007 State 
Strategy on September 27, 2007. (CARB Resolution No. 07-28). CARB also 
provided the required public notice, opportunity for public comment, 
and a public hearing prior to its April 24, 2009 adoption of the 2009 
State Strategy Status Report. CARB also provided the required public 
notice, opportunity for public comment, and a public hearing prior to 
its April 28, 2011 adoption of the 2011 Progress Report. See CARB 
Resolution 09-34 and CARB Executive Order S-11-010.
    The SIP submittals include proof of publication for notices of the 
District and CARB public hearings, as evidence that all hearings were 
properly noticed. We find, therefore, that the four submittals that 
comprise the South Coast PM2.5 Plan meet the procedural 
requirements of CAA sections 110(a) and 110(l).
    CAA section 110(k)(1)(B) requires EPA to determine whether a SIP 
submittal is complete within 60 days of receipt. This section also 
provides that any plan that EPA has not affirmatively determined to be 
complete or incomplete will become complete 6 months after the date of 
submittal by operation of law. EPA's SIP completeness criteria are 
found in 40 CFR part 51, Appendix V.
    The South Coast 2007 AQMP became complete by operation of law on 
May 28, 2008. The November 16, 2007 submission of the 2007 State 
Strategy and the 2009 revisions to the Strategy became complete by 
operation of law on May 16, 2008 and February 12, 2010, respectively. 
We determined that the 2011 Progress Report was complete on June 13, 
2011.\12\
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    \12\ See letter, Deborah Jordan, EPA Region 9, to James 
Goldstene, CARB, dated June 13, 2011 in the docket for today's 
action.
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III. EPA's 2010 Proposed Action on the South Coast PM2.5 SIP

    This is the second time EPA has proposed action on California's SIP 
to address attainment of the 1997 PM2.5 standards in the 
South Coast nonattainment area. On November 22, 2010 (75 FR 71294), EPA 
proposed to approve in part and disapprove in part the 2007 South Coast 
PM2.5 plan and the related portions of the 2007 State 
Strategy as amended in 2009.
    Specifically, we proposed to approve the emissions inventories as 
meeting the applicable requirements of the CAA and the PM2.5 
implementation rule in 40 CFR part 51, subpart Z. We proposed to 
approve the District's and CARB's commitments to specific measures and 
specific aggregate emissions reductions in these SIP revisions because 
their approval would strengthen the SIP. We also proposed to approve 
the air quality modeling.
    We previously proposed to disapprove the attainment demonstration 
as not meeting the applicable requirements of the CAA and the 
PM2.5 implementation rule because it relied too extensively 
on enforceable commitments to reduce emissions in place of fully-
adopted and submitted rules. Based on this proposed disapproval, we 
also proposed to disapprove the RACM/RACT and RFP demonstrations. We 
also proposed to disapprove the related contingency measures and 
transportation conformity motor vehicle emissions budgets for the RFP 
milestone years 2009 and 2012 and the attainment year of 2014. Finally, 
we proposed not to grant the State's request to extend the attainment 
date for the PM2.5 NAAQS in the South Coast nonattainment 
area to April 5, 2015.
    During the comment period for the November 2010 proposal, we 
received four comment letters from the public as well as comment 
letters from CARB and the District. Subsequent to the close of the 
comment period, CARB adopted and submitted revisions to the South Coast 
2007 AQMP and 2007 State Strategy. After considering information 
contained in the comment letters and these supplemental SIP submittals, 
we have substantially amended our November 2010 proposed action as 
described below. EPA will consider all significant comments submitted 
in response to both its November 2010 proposal and today's proposal 
before taking final action on the South Coast 2007 AQMP. However, EPA 
strongly encourages those who submitted comments on the November 2010 
proposal to submit revised comments reflecting today's amended proposal 
during the comment period on this amended proposal.

IV. CAA and Regulatory Requirements for PM2.5 Attainment 
SIPs

    EPA is implementing the PM2.5 NAAQS under Title 1, part 
D, subpart 1 of the CAA, which includes section 172, ``Nonattainment 
plan provisions.'' Section 172(a)(2) establishes the attainment date 
for a PM2.5 nonattainment area ``as expeditiously as 
practicable'' but no later than five years after the area's designation 
as nonattainment. This section also allows EPA to grant up to a five-
year extension of an area's attainment date based on the severity of 
the area's nonattainment and the availability and feasibility of 
controls. EPA designated the South Coast as a nonattainment area 
effective April 5, 2005, and thus the applicable attainment date is no 
later than April 5, 2010 or, should EPA grant a full five-year 
extension, no later than April 5, 2015.
    Section 172(c) contains the general statutory planning requirements 
applicable to all nonattainment areas, including the requirements for 
emissions inventories, RACM/RACT, attainment demonstrations, RFP 
demonstrations, and contingency measures.
    On April 25, 2007, EPA issued the Clean Air Fine Particle 
Implementation

[[Page 41566]]

Rule for the 1997 PM2.5 NAAQS. 72 FR 20586, codified at 40 
CFR part 51, subpart Z (PM2.5 implementation rule). The 
PM2.5 implementation rule and its preamble address the 
statutory planning requirements for emissions inventories, RACM/RACT, 
attainment demonstrations including air quality modeling requirements, 
RFP demonstrations, and contingency measures. This rule also addresses 
other matters such as which PM2.5 precursors must be 
addressed by the State in its PM2.5 attainment SIP, 
applicable attainment dates, and the requirement for mid-course 
reviews.\13\ We will discuss each of these CAA and regulatory 
requirements for attainment plans in more detail below.
---------------------------------------------------------------------------

    \13\ In June 2007, a petition to the EPA Administrator was filed 
on behalf of several public health and environmental groups 
requesting reconsideration of four provisions in the 
PM2.5 implementation rule. See EarthJustice, Petition for 
Reconsideration, ``In the Matter of Final Clean Air Fine Particle 
Implementation Rule,'' June 25, 2007. These provisions are (1) the 
presumption that compliance with the Clean Air Interstate Rule 
satisfies the NOX and SO2 RACT requirements 
for electric generating units; (2) the deferral of the requirement 
to establish emission limits for condensable particulate matter 
(CPM) until January 1, 2011; (3) revisions to the criteria for 
analyzing the economic feasibility of RACT; and (4) the use of out-
of-area emissions reductions to demonstrate RFP. These provisions 
are found in the PM2.5 implementation rule and preamble 
at 20623-20628, 40 CFR 51.1002(c), 20619-20620, and 20636, 
respectively. On May 13, 2010, EPA granted the petition with respect 
to the fourth issue. Letter, Gina McCarthy, EPA, to David Baron and 
Paul Cort, EarthJustice, May 13, 2010. On April 25, 2011, EPA 
granted the petition with respect to the first and third issues, but 
denied the petition with respect to the second issue given that the 
deferral period for CPM emissions limits had already ended. Letter, 
Lisa P. Jackson, EPA, to Paul Cort, EarthJustice, April 25, 2011. 
EPA intends to publish in the Federal Register notice that will 
announce the granting of the latter petition with respect to certain 
issues and to initiate a notice and comment process to consider 
proposed changes to the 2007 PM2.5 implementation rule.
    Neither the District nor the State relied on the first, third, 
or fourth of these provisions in preparing the South Coast 2007 AQMP 
or 2007 State Strategy. The District has deferred CPM limits in its 
rules. This limited deferral does not affect the South Coast 2007 
AQMP's RACM/RACT and expeditious attainment demonstrations. EPA will 
evaluate any rule adopted or revised by the District after January 
1, 2011 to assure that it appropriately addresses CPM.
---------------------------------------------------------------------------

V. Review of the South Coast 2007 AQMP and the South Coast Portion of 
the 2007 State Strategy

    We summarize our evaluation of the South Coast PM2.5 
plan's compliance with applicable CAA and EPA regulatory requirements 
below. Our detailed evaluation can be found in the TSD for this 
proposal, which is available on line at https://www.regulations.gov in 
docket number EPA-R09-OAR-2009-0366, or from the EPA contact listed at 
the beginning of this notice.

A. Emissions Inventories

1. Requirements for Emissions Inventories
    CAA section 172(c)(3) requires states to submit a plan revision 
that includes ``comprehensive, accurate, current inventory of actual 
emissions from all sources of the relevant pollutant.'' The 
PM2.5 implementation rule requires states to include direct 
PM2.5 emissions and emissions of all PM2.5 
precursors in this inventory, even if it has determined that control of 
any of these precursors is not necessary for expeditious attainment. 40 
CFR 51.1008(a)(2) and 72 FR 20586, at 20648. Direct PM2.5 
includes condensable particulate matter. See 40 CFR 51.1000. 
PM2.5 precursors are NOX, SO2, VOC, 
and ammonia (NH3).\14\ Id. The inventories should meet the 
data requirements of EPA's Consolidated Emissions Reporting Rule 
(codified at 40 CFR part 51 subpart A) and include any additional 
inventory information needed to support the SIP's attainment 
demonstration and (where applicable) RFP demonstration. 40 CFR 
51.1008(a)(1) and (2).
---------------------------------------------------------------------------

    \14\ The District controls sulfur oxides (SOX), which 
includes SO2, and considers the two terms interchangeable 
for emissions purposes. We will use SOX in this notice.
---------------------------------------------------------------------------

    Baseline emissions inventories are required for the attainment 
demonstration and for meeting RFP requirements. As determined on the 
date of designation, the base year for these inventories should be the 
most recent calendar year for which a complete inventory was required 
to be submitted to EPA. The emission inventory for calendar year 2002 
or other suitable year should be used for attainment planning and RFP 
plans for areas initially designated nonattainment for the 
PM2.5 NAAQS in 2005. 40 CFR 51.1008(b).
    EPA has provided additional guidance for PM2.5 emission 
inventories in ``Emissions Inventory Guidance for Implementation of 
Ozone and Particulate Matter NAAQS and Regional Haze Regulations,'' 
November 2005 (EPA-454/R-05-001).
2. Emissions Inventories in the South Coast 2007 AQMP
    The base year and future year baseline planning inventories for 
direct PM2.5 and all PM2.5 precursors for the 
South Coast nonattainment area together with additional documentation 
for the inventories are found in Appendix III of the South Coast 2007 
AQMP. Average annual day baseline inventories are provided for the 
plan's base year of 2002 (the reference year for the RFP demonstration) 
as well as 2005, 2008, 2010, 2011, and 2014. The base year and baseline 
inventories incorporate reductions from federal, state, and District 
measures adopted prior to 2007. South Coast 2007 AQMP, page 3-1. The 
District also provided both summer and winter planning inventories for 
PM2.5 and PM2.5 precursors. South Coast 2007 
AQMP, Appendix III, page III-1-23.
    Table 1 is a summary of the average annual day inventories for 
directly-emitted PM2.5 and for the PM2.5 
precursors NOX, VOC, and SOX for the base year of 
2002 from the South Coast 2007 AQMP (derived from Appendix A, Table A-
2). It is these inventories that provide the basis for the control 
measure analysis and the RFP and attainment demonstrations in the South 
Coast 2007 AQMP.

 Table 1--South Coast Nonattainment Area Emissions Inventory Summary for PM2.5 and PM2.5 Precursors for the 2002
                                                  Baseline Year
                               [Annual average day emissions in tons per day] \a\
----------------------------------------------------------------------------------------------------------------
                                                                                                       NH3 \b\
          Emissions inventory category            NOX  2002    VOC  2002    PM2.5 2002    SOX 2002       2005
----------------------------------------------------------------------------------------------------------------
Stationary/Areawide Sources....................           93          302           60           22           75
On-road Mobile Sources.........................          628          362           18            4           29
Off-road Mobile Sources........................          372          180           21           27          n/a
                                                ----------------------------------------------------------------

[[Page 41567]]

 
    Total......................................         1093          844           99           53          104
----------------------------------------------------------------------------------------------------------------
\a\ Source: 2007 AQMP, pp. 3-9 and 3-14, Tables 3-1A and 3-3A. Numbers may not add due to rounding. Ammonia
  emissions estimates were updated to 2005 by SCAQMD.
\b\ NH3 numbers were not provided for 2002.

    As a starting point for the South Coast 2007 AQMP's inventories, 
the District used CARB's inventory for the year 2002. An example of 
this inventory and CARB's documentation for its inventories can be 
found in Appendices A and F, respectively, of the 2007 State Strategy. 
The 2002 inventory for the South Coast nonattainment area was projected 
to future years using CARB's California Emission Forecasting and 
Planning Inventory System (CEFIS). South Coast 2007 AQMP, Appendix III, 
page III-1-1. Both base year and baseline inventories use the current 
version of California's mobile source emissions model approved by EPA 
for use in SIPs, EMFAC2007, for estimating on-road motor vehicle 
emissions. 73 FR 3464 (January 18, 2008). Off-road inventories were 
developed using the CARB off-road model. Ammonia emissions estimates 
were provided separately by the District.\15\
---------------------------------------------------------------------------

    \15\ Electronic mail from Kathy Hsiao, SCAQMD to Wienke Tax, EPA 
Region 9, ``RE: NH3 numbers for SCAB,'' dated October 29, 2010.
---------------------------------------------------------------------------

    When CARB submitted the 2011 Progress Report, the revised 
attainment demonstration for the South Coast was based on the 2002 
baseline inventory. This is consistent with the baseline inventory in 
the 2007 AQMP, as well as the base year for the RFP demonstration. It 
is also the year recommended by EPA guidance.\16\
---------------------------------------------------------------------------

    \16\ See 72 FR 20586, at 20647.
---------------------------------------------------------------------------

3. Proposed Action on the Emission Inventories
    The inventories in the South Coast 2007 AQMP are based on the most 
current and accurate information available to the State and District at 
the time the Plan was developed and submitted (including using the 
latest EPA-approved version of California's mobile source emissions 
model, EMFAC2007), address comprehensively all source categories in the 
South Coast nonattainment area, and are consistent with EPA's inventory 
guidance. For these reasons, EPA is proposing to approve the 2002 base 
year emissions inventory in the South Coast 2007 AQMP as meeting the 
requirements of CAA section 172(c)(3) and 40 CFR 51.1008(a)(1) and to 
find that the baseline inventories in the South Coast 2007 AQMP provide 
an adequate basis for the RACM/RACT, RFP, and attainment 
demonstrations. We provide more detail on our review of the base year 
inventory as well as the projected year inventories in section II.A. of 
the TSD.
    Since late 2007, California has experienced an economic recession 
that has greatly reduced current levels of economic activity in the 
State's construction and goods movement sectors. The recession has 
resulted in lowered projected future levels of activity in this sector. 
2011 Progress Report, Appendix E. As a result, projected emission 
levels from these categories are now substantially lower than the 
levels projected for 2008 and later in the Plan as submitted in 2007. 
At this time, California is addressing these recession impacts on 
future economic activity through adjustments to the baseline 
inventories for specific source categories. See 2011 Progress Report, 
Appendix E, page 2. There are no recession-related adjustments to the 
2002 base year inventory in the South Coast 2007 AQMP.
    CARB also made technical changes to the inventories for diesel 
trucks, buses, and certain categories of off-road mobile source engines 
as part of its December 2010 rulemaking amending the In-Use On-Road 
Truck and Bus Rule and the In-Use Off-Road Engine rule. Id. The State 
estimates that these changes collectively reduce the 2002 base year 
total inventory in the South Coast by 4 percent for NOX and 
5 percent for PM2.5.\17\ These changes are small given the 
normal and unavoidable uncertainties in all emissions inventories, and 
therefore, do not change our basis for proposing to approve the base 
year inventory or to find the baseline inventories adequate for SIP 
planning purposes. We discuss the impact of these changes on the plan's 
RFP and attainment demonstrations later in this notice.
---------------------------------------------------------------------------

    \17\ See Attachment 1 to the letter, Lynn Terry, Deputy 
Executive Officer, CARB, to Elizabeth Adams, Deputy Director, Air 
Division, US EPA Region 9, dated May 18, 2011 (``CARB Progress 
Report supplement''), in the docket for today's proposal.
---------------------------------------------------------------------------

    We note that the District and CARB are currently working on 
revisions to the South Coast AQMP to address the 2006 24-hour 
PM2.5 standards. These revisions are due to EPA in December 
2012 and will include the most current inventory information that is 
available.

B. Reasonably Available Control Measures (RACM)/Reasonably Available 
Control Technology (RACT) and Adopted Control Strategy

1. Requirements for RACM/RACT
    CAA section 172(c)(1) requires that each attainment plan ``provide 
for the implementation of all reasonably available control measures as 
expeditiously as practicable (including such reductions in emissions 
from existing sources in the area as may be obtained through the 
adoption, at a minimum, of reasonably available control technology), 
and shall provide for attainment of the national primary ambient air 
quality standards.'' EPA defines RACM as measures that a State finds 
are both reasonably available and contribute to attainment as 
expeditiously as practicable in its nonattainment area. Thus, what 
constitutes RACM/RACT in a PM2.5 attainment plan is closely 
tied to that plan's expeditious attainment demonstration. 40 CFR 
51.1010; 72 FR 20586 at 20612. States are required to evaluate RACM/
RACT for direct PM2.5 and all of its attainment plan 
precursors. 40 CFR 51.1002(c).
    Consistent with subpart 1 of Part D of the CAA, EPA is requiring a 
combined approach to RACM and RACT for PM2.5 attainment 
plans. Subpart 1, unlike subparts 2 and 4, does not identify specific 
source categories for which EPA must issue control technology documents 
or guidelines for what constitutes RACT, or identify specific source 
categories for State and EPA evaluation during attainment plan 
development. 72 FR 20586 at 20610. Rather, under subpart 1, EPA 
considers

[[Page 41568]]

RACT to be part of an area's overall RACM obligation. Because of the 
variable nature of the PM2.5 problem in different 
nonattainment areas, EPA determined not only that states should have 
flexibility with respect to RACT and RACM controls but also that in 
areas needing significant emission reductions to attain the standards, 
RACT/RACM controls on smaller sources may be necessary to reach 
attainment as expeditiously as practicable. 72 FR 20586 at 20612, 
20615. Thus, under the PM2.5 implementation rule, RACT and 
RACM are those reasonably available measures that contribute to 
attainment as expeditiously as practicable in the specific 
nonattainment area. 40 CFR 51.1010; 72 FR 20586 at 20612.
    The PM2.5 implementation rule requires that attainment 
plans include the list of measures the state considered and information 
sufficient to show that a state met all requirements for the 
determination of what constitutes RACM/RACT in its specific 
nonattainment area. 40 CFR 51.1010. In addition, the rule requires that 
the state, in determining whether a particular emissions reduction 
measure or set of measures must be adopted as RACM/RACT, consider the 
cumulative impact of implementing the available measures and adopt as 
RACM/RACT any potential measures that are reasonably available 
considering technological and economic feasibility if, considered 
collectively, they would advance the attainment date by one year or 
more. Id. Any measures that are necessary to meet these requirements 
that are not already either federally promulgated, part of the state's 
SIP, or otherwise creditable in SIPs must be submitted in enforceable 
form as part of a state's attainment plan for the area. 72 FR 20586 at 
20614.
    A more comprehensive discussion of the RACM/RACT requirement for 
PM2.5 attainment plans and EPA's guidance for it can be 
found in the PM2.5 implementation rule preamble at 72 FR 
20586, at 20609-20633 and in section II.D. of the TSD for this 
proposal.
2. RACM/RACT Demonstration in the South Coast 2007 AQMP and the 2007 
State Strategy
    For the South Coast 2007 AQMP and the 2007 State Strategy, the 
District, CARB and the local agency (through the South Coast's 
metropolitan planning organization (MPO), the Southern California 
Association of Governments (SCAG)), each undertook a process to 
identify and evaluate potential reasonably available control measures 
that could contribute to expeditious attainment of the PM2.5 
standards in the South Coast nonattainment area. These RACM/RACT 
analyses address control measures for sources of direct 
PM2.5, NOX, SOX, and VOC, which are 
the State's selected attainment plan precursors for the 1997 
PM2.5 standards in the South Coast (see section V.C.3 
below). We describe each agency's efforts below.
a. District's RACM/RACT Analysis and Adopted Control Strategy
    The District's RACM/RACT analysis, which focuses on stationary and 
area source controls, is described in Chapter 6 and Appendix VI of the 
South Coast 2007 AQMP.
    Since the 1970s, the District has adopted stationary source control 
rules that have resulted in significant improvement of air quality in 
the South Coast nonattainment area. When command and control rules were 
no longer within the limitations of economic efficiency, the District 
began using economic incentive approaches with programs such as the 
Surplus Off-Road Opt-In for NOX (SOON) program and the Carl 
Moyer program.18 19 While the District still relies on 
command and control regulations, the District's control strategies are 
now supplemented by market incentive and compliance flexibility 
approaches where appropriate. These regulations and strategies have 
yielded significant emissions reductions from sources under the 
District's jurisdiction. In developing the South Coast 2007 AQMP, the 
District conducted a process to identify RACM for the South Coast that 
involved public meetings to solicit input, evaluation of EPA suggested 
RACM and RACT, and evaluation of other air agencies' regulations. See 
South Coast 2007 AQMP, Appendix VI.
---------------------------------------------------------------------------

    \18\ The Carl Moyer Memorial Air Quality Standards Attainment 
Program (``Carl Moyer Program'') provides incentive grants for 
engines, equipment and other sources of pollution that are cleaner 
than required, providing early or extra emission reductions. 
Eligible projects include cleaner on-road, off-road, marine, 
locomotive and stationary agricultural pump engines. The program 
achieves near-term reductions in emissions of NOX, PM, 
and VOC or reactive organic gas (ROG) which are necessary for 
California to meet its clean air commitments under the SIP.
    \19\ The SOON program provides funding assistance to applicable 
fleets for the purchase of commercially-available low-emission 
heavy-duty engines to achieve near-term reduction of NOX 
emissions from in-use off-road diesel vehicles. All large fleets 
with a total statewide equipment horsepower (hp) over 20,000 hp must 
apply for funding. Fleets below 20,000 hp may voluntarily 
participate in this program.
---------------------------------------------------------------------------

    To determine which measures would be feasible for the South Coast, 
the District looked at measures implemented in other nonattainment 
areas' plans (including the San Joaquin Valley, the San Francisco Bay 
Area, Sacramento, Ventura, Dallas-Fort Worth, the Houston-Galveston 
area, and by the Lake Michigan Air Directors Consortium, or LADCO), and 
held meetings with CARB, technical experts, local government 
representatives, and the public during development of the South Coast 
2007 AQMP. The District sponsored an AQMP summit, which generated 200 
potential control measures. In addition, the District reviewed the list 
of control measures suggested for consideration in EPA's 
PM2.5 implementation rule. The District also reevaluated all 
82 District rules and regulations. The District then screened the 
identified measures and rejected those that affected few or no sources 
in the South Coast, had already been adopted as rules, or were in the 
process of being adopted. The District evaluated the remaining measures 
using baseline inventories, available control technologies, and 
potential emission reductions as well as whether the measure could be 
implemented on a schedule that would contribute to attainment of the 
PM2.5 standard assuming a 2015 deadline. South Coast 2007 
AQMP, Appendix VI.
    In general, EPA proposes to find that the District's current rules 
and regulations are equivalent to, or more stringent than, those 
developed by other air districts with respect to emissions of 
PM2.5 and PM2.5 precursors. The District is 
exploring several options for reducing emissions further. These include 
the feasibility of lowering emission limits and increasing levels of 
control in order to promote cleaner stationary source technologies; 
lowering the VOC content of coatings and solvents; establishing 
standards and test methods for generic equipment and lowering release 
or leak thresholds; improving leak detection, repair, inspection and 
maintenance; and adding best management practices to rules.
    Based on its RACM/RACT evaluation for stationary and area sources 
under its jurisdiction, the District developed 37 stationary source 
control measures which comprised all measures included in other 
districts' AQMPs, as well as some new innovative measures. The District 
determined that the few available measures that District staff did not 
include would not advance the attainment date or contribute to RFP due 
to the insignificant or unquantifiable emissions reductions that they 
would potentially generate. See South Coast 2007 AQMP, Appendix VI, 
page VI-7. Since submittal of the AQMP in 2007, the District has 
completed action on the majority of

[[Page 41569]]

these rules and submitted them to EPA for approval into the SIP.
    From October 2002 through June 2006, the District adopted 
approximately 17 rules to address its commitment to achieve the 
reductions committed to in the 2003 AQMP for the South Coast. These 
rules included controls on VOC emissions from refineries and chemical 
plants, co-composting operations, architectural coatings, solvent 
cleaning operations, oil and gas production wells, and livestock waste. 
Many of the adopted rules achieved more estimated reductions in VOC, 
NOX and SOX than were expected in the 2003 AQMP. 
A summary of these rules, which are included in the baseline emissions 
estimates for the South Coast 2007 AQMP, is provided in Table 1-2 of 
the South Coast 2007 AQMP. See South Coast 2007 AQMP, Chapter 1, Table 
1-2 and Chapter 4, page 4-6, and Table B-1 in Appendix B of the TSD for 
today's action.
    In addition to the rules adopted for the 2003 AQMP, the District 
has also made new commitments in its South Coast 2007 AQMP to achieve 
further reductions from VOC, NOX, SOX and direct 
PM2.5 sources in the South Coast area. The District 
committed to adopt and submit measures that will achieve the following 
additional emissions reductions: 10.8 tpd NOX, 10.4 tpd VOC, 
2.9 tpd direct PM2.5 and 2.9 tpd SOX.\20\ See 
2011 Progress Report, Appendix E, Table 1. The District expects to meet 
its emissions reductions commitments for each of the pollutants by 
adopting new control measures and programs found in the Table 4-2A of 
the South Coast 2007 AQMP (see South Coast 2007 AQMP, page 4-10 and 
CARB Staff Report on South Coast 2007 AQMP, p. 18), as updated in the 
2011 Progress Report, Appendix E, Tables 2 through 5 and from 
additional actions summarized in the CARB Staff Report on the South 
Coast 2007 AQMP (see CARB Staff Report on South Coast 2007 AQMP, p. 
17). The new control measures and additional actions are estimated to 
achieve more of the District's emission reduction commitments. They 
include new rules to regulate lubricants, consumer products, non-
RECLAIM ovens, dryers and furnaces, space heaters, facility 
modernizations, livestock waste, residential wood burning, and 
commercial cooking. The South Coast 2007 AQMP also identifies 22 
measures (beyond the new control measures and additional actions just 
discussed) for further review, which may also yield additional 
reductions towards the District's commitments. As discussed above, the 
District's commitment is to achieve the estimated total tonnage 
reductions of each pollutant because specific control measures and 
actions as adopted may provide more or less reductions than estimated 
in the South Coast 2007 AQMP.
---------------------------------------------------------------------------

    \20\ CARB uses the term ROG (reactive organic gases) where we 
use the term VOC (volatile organic compounds). We will use the term 
VOC in this notice to refer to both ROG and VOC.
---------------------------------------------------------------------------

    Finally, EPA notes that since the adoption of the South Coast 2007 
AQMP, the District has already adopted and submitted many of the rules 
in the South Coast 2007 AQMP that help fulfill the District's 
enforceable commitments for additional emission reductions of 
NOX, VOC, direct PM2.5 and SOX in the 
South Coast area. Table 3 below summarizes the status of these new 
rules.

                          Table 2--South Coast
           [Annual average day emissions in tons per day] \a\
------------------------------------------------------------------------
                                           SIP commitment by 2014
            Pollutant             --------------------------------------
                                    Commitment    Achieved     Balance
------------------------------------------------------------------------
VOC..............................         10.4        14.4         +4.0
NOX..............................         10.8         7.60        -3.2
PM2.5............................          2.9         1.00        -1.9
SOX..............................          2.9         4.01        +1.11
------------------------------------------------------------------------
Source: 2011 Progress Report, Appendix F, Table 1. The ``Achieved''
  column in Table 2 reflects District rules submitted to EPA. Table 3
  reflects emissions reductions EPA can credit towards the attainment
  demonstration.


          Table 3--Status of District Short- and Intermediate-Term Control Measures Credited in South Coast 2007 AQMP Attainment Demonstration
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                   Emissions reduction
           Control measure              Rule No.               Title               commitment in South     Emissions reductions         SIP status
                                                                                     Coast 2007 AQMP           achieved \a\
--------------------------------------------------------------------------------------------------------------------------------------------------------
BCM-03..............................          445  Woodburning fireplaces and    1.0 tpd PM2.5..........  1.0 tpd PM2.5; 0.44     74 FR 27716, 6/11/09.
                                                    wood stoves.                                           tpd VOC; 0.06 tpd
                                                                                                           NOX; 0.01 tpd SOX.
BCM-05..............................         1138  Underfired charbroilers.....  1.1 tpd PM2.5..........  ......................  66 FR 36170, 7/11/
                                                                                                                                   2001.
CTS-01..............................         1144  Metalworking fluids and       1.9 tpd VOC............  3.9 tpd VOC...........  75 FR 40726, 07/14/10.
                                                    direct-contact lubricants.
CMB-01..............................         1147  NOX reductions from           3.5 tpd NOX............  3.5 tpd NOX...........  75 FR 46845, 08/04/10.
                                                    miscellaneous sources.
CMB-02..............................         2002  Further SOX reductions from   2.9 tpd SOX............  4.0 tpd SOX...........  76 FR 30896, 5/27/11.
                                                    RECLAIM.
FUG-02..............................          461  Emissions Reductions from     3.7 tpd VOC............  VOC reductions          71 FR 18216, 4/11/06.
                                                    Gasoline Transfer and                                  substituted by Rule
                                                    Dispensing Facilities.                                 1143.
FUG-04..............................         1149  Storage Tank and Pipeline     None...................  0.04 tpd VOC..........  74 FR 67821, 12/21/09.
                                                    Cleaning and Degassing.
CMB-03..............................         1111  Further NOX reductions from   0.8 tpd NOX............  0.01 tpd NOX..........  75 FR 46845, 8/4/10.
                                                    space heaters.

[[Page 41570]]

 
MCS-01..............................       1110.2  Liquid and gaseous fuels--    .......................  0.6 tpd NOX; 0.3 tpd    74 FR 18995, 4/27/09.
                                                    stationary ICEs.                                       VOC.
FLX-02..............................  ...........  Refinery pilot program......  0.7 tpd VOC; 0.4 tpd     VOC reductions          ......................