96-17550. Registration of Fuels and Fuel Additives: Changes in Requirements, and Applicability to Blenders of Deposit Control Gasoline Additives  

  • [Federal Register Volume 61, Number 134 (Thursday, July 11, 1996)]
    [Proposed Rules]
    [Pages 36535-36543]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 96-17550]
    
    
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    ENVIRONMENTAL PROTECTION AGENCY
    40 CFR Part 79
    
    [FRL-5532-5]
    
    
    Registration of Fuels and Fuel Additives: Changes in 
    Requirements, and Applicability to Blenders of Deposit Control Gasoline 
    Additives
    
    AGENCY: Environmental Protection Agency (EPA).
    
    ACTION: Proposed rule.
    
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    SUMMARY: This document proposes several specific changes to regulations 
    requiring the registration and testing of designated motor vehicle 
    fuels and fuel additives (F/FAs) by their manufacturers. The objectives 
    are to reduce the number of respondents, streamline program 
    requirements, further ease small business burdens, and clarify some 
    specific technical provisions in the existing registration regulations. 
    Included in the proposed group of respondents no longer required to be 
    registered as fuel manufacturers are those who solely blend deposit 
    control additives into gasoline.
    
    DATES: Written comments on the issues presented in this document will 
    be accepted until August 12, 1996.
    
    ADDRESSES: Comments should be sent in duplicate to EPA Air Docket 
    Section (LE-131); Attention: Public Docket No. A-90-07; Room M-1500, 
    401 M Street S.W., Washington, DC 20460; Phone 202-260-7548 or 7549; 
    FAX 202-260-4000. The docket is open for public inspection from 8:00 
    a.m. until 5:30 p.m., Monday through Friday, except on government 
    holidays. Previous rulemaking documents and other materials related to 
    this proposal are available in the docket. As provided in 40 CFR part 
    2, a reasonable fee may be charged by EPA for photocopying services.
    
    FOR FURTHER INFORMATION CONTACT: Jim Caldwell (202-233-9303) or Joseph 
    Fernandes (202-233-9016), U.S. EPA, Office of Mobile Sources, Fuels and 
    Energy Division, Mail Code 6406J, 401 M Street SW, Washington, DC 
    20460.
        Electronic copies of this proposed rule, the regulatory text for 
    this proposed rule, and earlier rulemaking documents related to the F/
    FA Registration Program are available free of charge on EPA's 
    Technology Transfer Network Bulletin Board System (TTNBBS). For 
    specific instructions, contact Joseph Fernandes at the phone number or 
    address above. These documents are also available in the public docket 
    referenced above.
    
    SUPPLEMENTARY INFORMATION:
    
    I. Regulated Entities
    
        Regulated categories and entities potentially affected by this 
    action include:
    
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                  Category                  Examples of regulated entities  
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    Industry............................  Manufacturers of gasoline and     
                                           diesel fuel.                     
                                          Manufacturers of additives for    
                                           gasoline and diesel fuel.        
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        This table is not intended to be exhaustive, but rather provides a 
    guide for readers regarding entities likely to be regulated by this 
    action. This table lists the types of entities that EPA is now aware 
    could be potentially regulated by this action. Other types of entities 
    not listed in the table could also be regulated. To determine whether 
    your entity would be regulated by this action, you should carefully 
    examine this preamble and the proposed changes to the regulatory text. 
    You should also carefully examine the existing provisions of the 
    registration program at 40 CFR part 79.
    
    II. Introduction
    
    A. Background
    
        The F/FA registration program is authorized by section 211 of the 
    Clean Air Act (CAA) and codified in 40 CFR part 79. In accordance with 
    CAA sections 211(a) and (b)(1), basic registration requirements 
    applicable to gasoline and diesel fuels and their additives were issued 
    in 1975. These regulations require manufacturers to submit information 
    on their F/FA products, such as the commercial identity, chemical 
    composition, purpose-in-use, and range of concentration, in order to 
    have such products registered by the EPA.
        Additional registration requirements, implementing sections 
    211(b)(2) and (e), were proposed in April 1992 and February 1994 (57 FR 
    13168 and 59 FR 8886, respectively) and were finalized on May 27, 1994 
    (59 FR 33042, June 27, 1994). The additional regulations require 
    manufacturers, as part of their F/FA registration responsibilities, to 
    conduct tests and submit information on the health effects of their F/
    FA products. These requirements are organized within three tiers. Tier 
    1 requires analysis of the combustion and evaporative emissions of F/
    FAs and a survey of existing scientific information on the public 
    health and welfare effects
    
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    of these emissions. To the extent that adequate test data are not 
    already available (as defined in the regulations), Tier 2 requires 
    manufacturers to conduct specified toxicology tests to screen for 
    potential adverse health effects of the F/FA emissions. Under Tier 3, 
    follow-up testing may be required at EPA's discretion to further 
    evaluate concerns identified in the earlier tiers.
        The rule also includes several provisions to reduce the information 
    collection and testing burdens. Among these provisions is a voluntary 
    grouping and cost sharing program which allows manufacturers of similar 
    F/FAs to pool their resources and efforts in complying with the 
    requirements. Special provisions for small manufacturers are also 
    included.
        In subsequent sections of this notice, EPA proposes several 
    specific changes to the F/FA registration regulations. These proposals 
    would not impact the overall structure nor (with minor exceptions) the 
    scientific requirements of the current program. Rather, EPA is 
    proposing to revise and/or add certain definitions and provisions, with 
    the intended result of decreasing or, in some cases, removing the 
    requirements altogether for many F/FA registration respondents. EPA 
    believes that the proposed changes would significantly reduce the 
    overall burdens of the F/FA registration program without having an 
    appreciable impact on its monitoring, control, and information 
    collection objectives.
    
    B. Public Participation
    
        EPA desires full public participation in arriving at its final 
    decisions and solicits comments focused specifically on the proposals 
    in this notice. Wherever applicable, full supporting data and detailed 
    analysis should be submitted to allow maximum use of the comments. 
    Written materials already submitted in regard to the issues addressed 
    by these proposals will be fully considered by EPA, and need not be 
    resubmitted in response to this notice. At this time, EPA is not 
    seeking comments on issues other than those specifically addressed in 
    this notice, and is under no obligation to respond to any such comments 
    it may receive. EPA is not planning to hold a public hearing on this 
    proposed rule. However, a hearing will be held if requested within 10 
    days after publication. Requests for a public hearing should be 
    submitted in writing to Joseph Fernandes at the address provided above.
        Any proprietary information being submitted for the Agency's 
    consideration should be markedly distinguished from other submittal 
    information and clearly labeled ``Confidential Business Information.'' 
    Proprietary information should be sent directly to the contact persons 
    listed above, and not to the public docket, to ensure that it is not 
    placed in the docket. Information thus labeled and directed shall be 
    covered by a claim of confidentially and will be disclosed by EPA only 
    to the extent allowed and by the procedures set forth in 40 CFR Part 2.
        If no claim of confidentiality accompanies a submission when it is 
    received by EPA, it may be made available to the public without further 
    notice to the commenter.
    
    III. Fuel Manufacturer and Additive Definitions
    
    A. Background
    
        Section 211(a) of the Clean Air Act authorizes EPA to designate 
    fuels and fuel additives, and prohibits manufacturers or processors of 
    designated fuels and additives from introducing them into commerce 
    without having them registered. Section 211(b) describes the 
    registration requirement for designated fuels and fuel additives. 
    Pursuant to Sec. 211(b)(1), the manufacturer of any designated fuel or 
    additive must provide EPA with certain identifying information about 
    the fuel or additive to obtain registration. Section 211(b)(2) provides 
    EPA with discretionary authority to require health effects testing 
    information from manufacturers of designated fuels and additives for 
    the purpose of registration.
        In the 1977 amendments to the Clean Air Act, Congress included a 
    provision that directed EPA to issue regulations to implement 
    Sec. 211(b)(2). These regulations were issued in May 1994, and included 
    an amendment to EPA's previous definition of fuel manufacturer to 
    include importers. 59 FR 33042 (June 27, 1994). In today's notice, EPA 
    is proposing to amend the definition of fuel manufacturer to exclude 
    parties that add additives in amounts less than 1% by volume of the 
    resulting fuel/additive mixture, and to exclude oxygenate blenders who 
    meet the regulatory definition of a small business. In addition, EPA is 
    proposing to amend the definition of ``additive'' to exclude substances 
    composed solely of carbon and/or hydrogen.
        The term ``manufacturer of a fuel or fuel additive'' is used in 
    Sec. 211(a), 211(b), and 211(e), but the Act is silent on the 
    definition of ``manufacturer'' and ``additive.'' Promulgating 
    regulatory definitions of ``fuel manufacturer'' and ``additive'' for 
    purposes of implementing these subsections is within the Agency's 
    discretion to interpret the statute it administers where that statute 
    is silent with respect to a specific issue. See Chevron U.S.A., Inc. v. 
    NRDC, 467 U.S. 837 (1984). A clear definition of ``fuel manufacturer'' 
    is necessary for EPA to implement its authority effectively under 
    Sec. 211(a), (b), and (e), and to provide certainty as to which parties 
    are subject to statutory requirements that apply to fuel manufacturers. 
    In addition, it is necessary for EPA to define ``additive'' to clarify 
    which products are covered by EPA's regulations under Sec. 211(e) 
    covering registration and health effects testing requirements.
        EPA believes it is reasonable and appropriate to define ``fuel 
    manufacturer'' to exclude parties that add additives in amounts less 
    than 1% by volume of the resulting fuel/additive mixture. The health 
    effects information that such parties would be required to submit will 
    also be obtained from the manufacturers of the additive, who would not 
    be exempted under the proposed amendment. Therefore, excluding these 
    parties from the definition of fuel manufacturer would reduce the 
    generation and collection of duplicative information. For similar 
    reasons, EPA also believes it is reasonable and appropriate to define 
    ``fuel manufacturer'' to exclude oxygenate blenders who meet the 
    regulatory definition of a small business. As discussed below, EPA 
    believes that it is reasonable and appropriate to define ``additive'' 
    to exclude substances composed solely of carbon and/or hydrogen.
        According to Sec. 79.1, the F/FA registration regulations apply to 
    all manufacturers of designated fuels and fuel additives. Designated F/
    FAs, specified in Secs. 79.30-79.33, are currently limited to motor 
    vehicle gasoline and diesel fuels and to additives intended for use in 
    these fuels. The applicable definition of a ``fuel manufacturer'' is 
    provided in Sec. 79.2(d):
    
        Fuel manufacturer means any person who, for sale or introduction 
    into commerce, produces, manufactures, or imports a fuel or causes 
    or directs the alteration of the chemical composition of, or the 
    mixture of chemical compounds in, a bulk fuel by adding to it an 
    additive.
    
        The comprehensiveness of this definition has led to some redundancy 
    in registration requirements. It has also led to problems and confusion 
    arising from the fact that registration and testing responsibilities 
    are sometimes transitive, i.e., they pass along from one manufacturer 
    to another, generally from
    
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    bulk additive manufacturers to their fuel manufacturer customers. A 
    number of manufacturers have contacted EPA about these problems (e.g., 
    see docket items VI-D-01, VI-D-05, VI-D-06, and VI-D-11).
        For example, terminal owners and others who buy and blend bulk 
    additives into fuel are, according to the definition cited above, fuel 
    manufacturers.1 These parties are therefore subject to the product 
    registration and testing responsibilities applicable to fuel 
    manufacturers. Under the current regulations, they are required to 
    register their fuel products, including the identity, purpose, and 
    amount of bulk additive(s) which they blend (or intend to blend) into 
    the fuel. Furthermore, they are responsible for any testing applicable 
    to the resulting fuel/additive mixture, or for participating in one or 
    more testing groups based on the composition of this mixture. In 
    effect, their registration and testing responsibilities, and their 
    grouping and cost-sharing opportunities, are defined by the composition 
    of the bulk additives they mix into fuel, though in many instances they 
    may not even know the actual composition of the additive products they 
    buy and use.
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        \1\ However, independent terminal operators which blend 
    additives into their customers' fuels at the specific direction of 
    such customers are not considered fuel manufacturers. Also, end 
    users, such as fleet owners/operators who blend additives into bulk 
    fuel for their own fleet use, are not considered fuel manufacturers.
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        The transitivity of registration and testing requirements from 
    additive manufacturers to their fuel manufacturer customers has caused 
    the number of parties subject to registration requirements to multiply 
    and has led to confusion among the various parties along the F/FA 
    production-blending-distribution chain. It may also have unintended 
    affects on the F/FA commercial marketplace. In some cases, for example, 
    blenders may stop using certain kinds of additives rather than 
    incurring the responsibilities of a fuel manufacturer, or may switch 
    from their traditional suppliers to new suppliers based on the grouping 
    properties (set forth in Sec. 79.56) of the competing additives. A 
    particularly awkward result may occur when the direct manufacturer of 
    an additive is exempt from testing requirements under the program's 
    small business provisions (Sec. 79.58(d)), but the fuel manufacturers 
    who buy and blend the additive into fuel do not qualify for the 
    exemption and must still test the additive/fuel mixture. To keep their 
    customer base, some small manufacturers of ``atypical'' additives 
    (defined in Sec. 79.56(e)) state that they may find it necessary to 
    waive their small business exemptions and shield their customers from 
    additive testing requirements by fully funding the testing themselves 
    (see, for example, docket item VI-D-06). Clearly, this outcome would 
    undermine the special allowances which EPA intended to grant to small 
    businesses. A revised Sec. 79.58(d)(3) is proposed to remedy this 
    situation, by exempting a fuel manufacturer from Tier 2 requirements 
    for the use of an additive which is exempt from Tier 2.
        Another problem associated with the definition of ``fuel 
    manufacturer'' has arisen as a result of a recent change in the 
    definition of ``fuel additive''. The final rule which added health 
    effects testing to the registration requirements for F/FAs (59 FR 
    33042) also changed the definition of an additive, as specified in 
    Sec. 79.2(e). Previously, substances composed solely of carbon and/or 
    hydrogen had been specifically excluded from the definition of an 
    additive,2 and thus did not have to be registered. Since these 
    substances were not considered additives, parties which blended them 
    into fuels were not considered fuel manufacturers and were not subject 
    to the F/FA registration requirements on the basis of that blending 
    activity.
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        \2\ The presence of trace contamination with elements other than 
    carbon and hydrogen did not factor into this exclusion.
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        Recognizing that all-hydrocarbon substances may have toxic 
    properties, the new rule removed the exclusion of all-hydrocarbon 
    substances from the definition of an additive. At the time, EPA was 
    particularly concerned about potential increased use of benzene and 
    other aromatic hydrocarbon additives. However, the change in the 
    definition of an additive has raised some unintended concerns. Under 
    the new definition, hydrocarbon fuel blending stocks (e.g., kerosene, 
    butane, propane), commonly used on a seasonal basis to change the 
    evaporative or flow properties of conventional fuels, could now be 
    considered as additives. Thus, parties which blend these fuel 
    substances into gasoline or diesel fuel could be considered to fit the 
    definition of ``fuel manufacturer.'' Potentially, hundreds of 
    additional parties could be required to register as F/FA manufacturers, 
    creating a substantial regulatory paperwork burden while providing 
    little incremental information to EPA. This was not EPA's intent. 
    Furthermore, the concern about benzene and other aromatics, which 
    originally motivated EPA to delete the all-hydrocarbon exclusion from 
    the additive definition, has now been largely addressed by the 
    reformulated gasoline/anti-dumping rules and other regulatory 
    mechanisms which limit the aromatic composition of gasoline and diesel 
    fuels. In sum, therefore, the change in the additive definition has 
    created a potentially large number of unintended new ``fuel 
    manufacturer'' respondents among those who add commonplace blending 
    stocks to gasoline and diesel fuels, while achieving little in regard 
    to EPA's original intent.
        A substantial number of registrants is composed of persons who fit 
    the definition of ``fuel manufacturer'' because they blend ethanol into 
    gasoline. In the case of oxygenates other than ethanol, the oxygenate 
    is generally added to gasoline at the fuel refinery, before the 
    gasoline is distributed through the pipeline. These ``upstream'' 
    oxygenate blenders tend to be relatively limited in number, and often 
    are large fuel manufacturing businesses. Ethanol, on the other hand, is 
    generally prohibited from transport through the pipeline (pipeline 
    policy, technical reasons), and must be added to the fuel downstream. 
    Thus, rather than being blended by relatively few fuel refiners, 
    ethanol is added to fuel by large numbers of terminal operators, fuel 
    haulers, and some fuel retailers. Many such ethanol blenders qualify as 
    small businesses under the definition in Sec. 79.58(d)(2) and thus are 
    excused from the Tier 1 and Tier 2 health effects testing provisions of 
    the F/FA registration regulations. Nevertheless, as fuel manufacturers, 
    they must still comply with the basic reporting requirements of the F/
    FA registration program. This combination of circumstances maintains a 
    significant paperwork burden for such respondents, while adding little 
    information to EPA in regard to oxygenated fuels beyond that which is 
    currently available through other program reporting mechanisms.
    
    B. Proposed Changes
    
        EPA proposes to address the problems summarized above by modifying 
    the definitions of ``additive'' and ``fuel manufacturer.'' First, EPA 
    proposes to revise the current definition of an additive (at 
    Sec. 79.2(e)) to exclude substances composed solely of carbon and/or 
    hydrogen, thus reinstating the definition which was in effect prior to 
    the final rule of May 27, 1994. As described previously, this action 
    would provide regulatory relief to perhaps hundreds of companies which 
    are now considered ``fuel manufacturers'' because they add common 
    hydrocarbon
    
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    stocks to finished fuels. It should be noted that persons who blend 
    hydrocarbon stocks together to produce a usable motor vehicle fuel 
    (rather than adding hydrocarbons to a finished fuel) would continue to 
    be considered fuel manufacturers.
        Second, EPA proposes to add provisos to the definition of a fuel 
    manufacturer (at Sec. 79.2(d)) such that the addition of a small volume 
    of any additive 3 to fuel would not in itself cause any party to 
    be considered a fuel manufacturer, nor would the addition of an 
    oxygenating additive by a party qualifying for the small business 
    provisions of the registration program. The proposed new definition of 
    a fuel manufacturer is as follows:
    
        \3\ Of course, the additive itself must still be registered.
    
        Fuel manufacturer means any person who, for sale or introduction 
    into commerce, produces, manufactures, or imports a fuel or causes 
    or directs the alteration of the chemical composition of a bulk 
    fuel, or the mixture of chemical compounds in a bulk fuel, by adding 
    to it an additive, except that (1) a party who adds a quantity of 
    additive(s) amounting to less than 1.0 percent by volume of the 
    resultant additive(s)/fuel mixture is not thereby considered a fuel 
    manufacturer, and (2) a party who qualifies as a small business 
    under the criteria in Sec. 79.58(d)(2) of this subpart, and who adds 
    an oxygenate compound(s) to fuel is not thereby considered a fuel 
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    manufacturer.
    
        This proposed definition would significantly reduce the number of 
    F/FA registration respondents and would address the problems described 
    above that result from the ``transitivity'' of registration and testing 
    requirements under the current regulations. Under this definition, the 
    addition of most ``baseline'' and ``atypical'' additives at ordinary 
    treatment rates would not cause the blending party to be a fuel 
    manufacturer because such additives are added in amounts less than 1% 
    of the resultant mixture. In the general case, parties which add 
    oxygenates to fuel, in an amount sufficient to produce a fuel mixture 
    categorized as non-baseline,4 would still be considered fuel 
    manufacturers. EPA believes this to be appropriate because the 
    relatively large added volumes can cause substantive changes in the 
    basic characteristics, emission properties, and toxic potential of the 
    fuel. However, to reduce the number of respondents required only to 
    submit redundant registration paperwork, the proposed definition of a 
    fuel manufacturer excludes oxygenate blenders who qualify for the small 
    business provisions of the registration program (chiefly, small ethanol 
    blenders).
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        \4\ As specified in Sec. 79.56(e)(3)(I) and (ii), non-baseline 
    F/FAs contain (among other criteria) no elements in addition to 
    carbon, hydrogen, oxygen, nitrogen, and sulfur, and, in the case of 
    gasoline F/FAs, contain 1.5 percent or more oxygen by weight, and, 
    in the case of diesel F/FAs, contain 1.0 percent or more oxygen by 
    weight.
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        For convenience, it is proposed that the definition of ``oxygenate 
    compound'' at 40 CFR 79.50 also be incorporated at 40 CFR 79.2(k). EPA 
    requests comments on the proposed changes to the definitions of 
    ``additive'' and ``fuel manufacturer.''
    
    C. Relationship to the Gasoline Detergent Additive Program
    
        An interface exists between the F/FA registration program and the 
    detergent additive program.5 In order to avoid duplicate reporting 
    requirements, the detergent additive program interim regulations in 40 
    CFR Part 80 make use of the existing F/FA registration system as the 
    mechanism for collecting much of the information required of detergent 
    additive blenders. However, if the definition of a fuel manufacturer is 
    changed as proposed above, then detergent additive blenders would no 
    longer be considered fuel manufacturers and would no longer be required 
    to register under the F/FA registration program. Thus, the source of 
    information on which EPA relies for the interim detergent additive 
    program would no longer be available. However, as will be discussed in 
    the upcoming final detergent rule, EPA has concluded that this 
    information is no longer necessary. Therefore, there would be no 
    adverse effect on the detergent additive program.
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        \5\ Regulation of Fuels and Fuel Additives: Standards for 
    Deposit Control Gasoline Additives. Proposed Rule: 59 FR 64213, Dec. 
    6, 1993. Interim Program Final Rule: 59 FR 54678, Nov. 1, 1994. 
    Certification Program Final Rule expected in 1996. These documents 
    are available on EPA's TTNBBS bulletin board. See ``For Further 
    Information. . .,'' at the beginning of this notice.
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    IV. Small Business Definition
    
        In the F/FA registration program, qualification for special small 
    business provisions is based in part on total annual sales revenue, 
    specifically, a $50 million limit for manufacturers of baseline and 
    non-baseline F/FAs, and a $10 million limit for manufacturers of 
    atypical F/FAs (see Secs. 79.58(d) (2) and (3), respectively). 
    Communications from trade organizations which represent fuel retailers 
    (docket item VI-D-05) suggest that these total sales criteria should be 
    revised to take tax effects into account. These organizations point out 
    that sales and excise taxes accumulate as the fuel passes along the 
    refining-distribution-marketing chain, but are generally not included 
    in the price paid for the fuel (nor in the gross sales revenue of the 
    seller) until the fuel is marketed at the retail level. In some 
    instances, the accumulated sales and excise taxes on fuel, including 
    applicable taxes at the local, state, and federal levels, may exceed 40 
    percent of the price paid by consumers, and thus represents a 
    comparable portion of the retailer's fuel-related sales revenues. The 
    commenters argue that, since these tax effects are not reflected in the 
    small business definition, small marketers are disadvantaged in 
    comparison with small refiners and other upstream businesses.
        EPA agrees and proposes that the term ``total annual sales'' at 
    Sec. 79.58(d) be modified by adding the following: ``excluding any 
    revenue which represents the collection of federal, state and/or local 
    excise taxes and/or sales taxes''. A revised Sec. 79.59(b)(5)(ii) is 
    proposed to require the submittal, at EPA's request, of applicable 
    bills of lading or other valid documentation to support the legitimacy 
    of any fuel sales amounts excluded as taxes. Comments are requested 
    concerning these proposed revisions.
    
    V. Biodiesel Provisions
    
        Biodiesel fuels and most blends of bio- and conventional diesel 
    fuel contain more than 1.0 weight percent oxygen and thus, according to 
    Sec. 79.56(e)(3)(ii)(B), fall into the non-baseline diesel category. 
    Furthermore, under Sec. 79.56(e)(4)(ii)(B)(2), biodiesel fuels derived 
    from vegetable oil (``mixed alkyl esters of plant origin'') are grouped 
    separately from biodiesel fuels derived from animal fat (``mixed alkyl 
    esters of animal origin'').
        EPA established these two separate biodiesel groups because of 
    concern that the composition of animal-derived and vegetable derived 
    fuels might differ considerably, and thus might demonstrate different 
    toxicologic properties. Both vegetable oil and animal fat are composed 
    of triglycerides, and the esterification process used to convert the 
    triglycerides to fuel (i.e., methyl esters) is the same for both. 
    However, up to 3.0 percent of the resulting chemical mixture is 
    composed of nonesterified reactants, other reaction products, and 
    possible contaminants, and EPA has been concerned that these could vary 
    significantly between the different feedstocks.
        In subsequent communications with EPA (docket item VI-E-01), 
    representatives of the industry have asserted that the composition of 
    biodiesel fuels of animal and plant origin have similar physical 
    properties. As a result of their arguments, EPA is
    
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    considering a change to the grouping rules which would permit animal- 
    and vegetable-derived biodiesel fuels to be grouped together.6 A 
    revised Sec. 79.56(e)(4)(ii)(B)(2) is proposed. EPA requests comments 
    on this potential action. Data demonstrating the qualitative and 
    quantitative differences between biodiesel fuels from different 
    feedstocks, including the identity and amount of contaminants, would be 
    particularly helpful to EPA's determination of the most appropriate 
    grouping rules for these fuels. Available data comparing the speciated 
    emissions of these fuels would also be of interest.
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        \6\ It is important to note that, notwithstanding any grouping 
    arrangements permitted under the program's grouping rules, EPA 
    retains the authority in Sec. 79.54(a) to require Tier 3 testing 
    either on an individual or group basis, and to require different 
    representative(s) of a group to be tested than may have been tested 
    at the Tier 1 and/or Tier 2 level. Thus, even if the regulations 
    were to be changed to allow biodiesel fuels to group together, EPA 
    would not be precluded from requiring vegetable-derived and animal-
    derived biodiesel fuels to undergo separate Tier 3 testing.
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        Section 79.56(e)(4)(ii)(B)(2)(ii) of the current regulations 
    contains generic requirements for choosing the representative to be 
    used in testing for the health effects of biodiesel and other defined 
    groups of oxygenating compounds. EPA is considering a requirement 
    specific to biodiesel which would require that 100 percent biodiesel 
    fuel be used as the biodiesel group's test representative. This would 
    maximize the likelihood of detecting any differences in the emissions 
    and/or toxicologic properties between conventional diesel and biodiesel 
    fuels. Under the existing regulations, it is likely that a 20 percent 
    biodiesel formulation will be selected as the test representative; 
    thus, lower exposures to biodiesel emissions would occur during the 
    testing. On the other hand, a 20 percent formulation does currently 
    appear to be the more likely formulation to be introduced into 
    commerce, at least in the near future. Thus, EPA requests comment on 
    which biodiesel fuel specification (20 percent, 100 percent, or some 
    other percentage) would be most appropriate in the context of the 
    testing program. Comments are also requested on the practicality of 
    each option with respect to test vehicle/engine compatibility.
    
    VI. Synthetic Fuel Provisions
    
    A. Background
    
        According to Secs. 79.56(e)(3)(I)(B) and (3)(ii)(B), a fuel derived 
    from any synthetic crude source, such as shale, coal, or tar sands, is 
    assigned to a non-baseline category. The regulation does not specify a 
    minimum amount of synthetic component which would cause a fuel to fall 
    into the non-baseline category. Sections 79.56(e)(4)(ii)(A)(3) and 
    (ii)(B)(3), for gasoline and diesel F/FAs respectively, define separate 
    non-baseline groups for ``formulations derived from each particular 
    non-conventional petroleum source or process'' (italics added for 
    emphasis), and lists the following types of fuel formulations as 
    examples of such groups: ``coal-derived formulations; chemically-
    synthesized formulations (including those using recycled chemical or 
    petrochemical products); tar sand-derived formulations; shale-derived 
    formulations; and other types of soil-recovered products used in 
    formulating (fuel)''.
        Since publication of these regulations, EPA has received 
    communications and information from the affected industry (see docket 
    items VI-D-02 and VI-D-03) claiming that synthetic fuels should be 
    categorized as baseline rather than non-baseline products. They point 
    out that the current regulations do not reflect the fact that finished 
    motor vehicle fuels are rarely, if ever, refined solely from synthetic 
    crude. Rather, when synthetic crude is used, it generally comprises a 
    relatively small fraction (e.g., 10-15 percent) of the total crude 
    which is refined into motor vehicle fuel. Moreover, the industry claims 
    that such fuels, once refined, are not significantly different from 
    conventional fuels. They are not labeled differently or stored 
    separately from fuels derived wholly from conventional crude sources. 
    In fact, they are commonly distributed by way of the conventional fuel 
    pipeline system. Downstream parties may therefore buy and sell, 
    additize, and otherwise handle fuels with some synthetic derivation, 
    without even knowing when or if this is the case.
        The F/FA registration program covers only designated motor vehicle 
    fuels and their associated additives. It does not require the 
    registration of crude feedstocks from which these F/FAs are made. Thus, 
    in the case of conventional fuels, it is not the entity which takes 
    crude oil from the ground who is responsible for fuel registration; 
    rather, it is the entity which refines finished fuel from crude oil who 
    is required to have that fuel registered prior to placing it in 
    commerce.7 Similarly, synfuel registration is not the 
    responsibility of parties who mine (or otherwise obtain) a synthetic 
    crude source and subject it to upgrading and purification processes 
    prior to actual fuel refining. Only after the synthetic crude is 
    refined (alone or as part of a synthetic/conventional crude mixture) is 
    the product subject to registration.
    ---------------------------------------------------------------------------
    
        \7\ Of course, this distinction is moot if the two activities 
    are accomplished by the same business entity.
    ---------------------------------------------------------------------------
    
        Clearly, the responsibility for registering synfuel falls to those 
    business entities (usually fuel refiners) which are the first parties 
    along their respective production chains to introduce into commerce a 
    designated motor vehicle fuel derived in whole or in part from a 
    nonconventional source, and conforming to standard specifications for 
    the designated fuel. These manufacturers are responsible for testing 
    the synfuel products they have had registered. Thus it is incumbent on 
    these manufacturers to take steps to determine if any of the materials 
    from which they produce designated fuels are of synthetic origin. Under 
    the current grouping provisions, those who manufacture synfuel derived 
    from the same non-conventional source are able to form testing groups 
    within the applicable (gasoline or diesel) non-baseline categories.
    
    B. Proposed Changes
    
        In the event that such synfuel groups are formed, the current 
    regulations do not contain adequate guidelines for choosing synfuel 
    group representatives. To facilitate detection of differences between a 
    synthetic fuel and the respective conventional fuel, EPA proposes that, 
    for any synfuel group, the representative should be a fuel derived 
    totally from the relevant synthetic source. If production of a useable 
    100 percent synfuel is impractical, then the group representative could 
    be a fuel reflecting the highest percentage of syncrude feedstock that 
    is practical and suitable for operating the relevant engine type. 
    Revised Secs. 79.56(e)(4)(ii)(A)(3)(ii) and (B)(3)(ii) are proposed. 
    Alternatively, the synfuel group representative could be specified as a 
    fuel reflecting the highest percentage of synthetic crude which is 
    actually input to any member refinery's crude distillation unit(s). The 
    test fuel would otherwise be required to conform to the additization 
    requirements and any other relevant base fuel specifications in 
    Sec. 79.55. Comments on these proposals for selecting synfuel group 
    representatives are requested.
        EPA also requests comments on some potential changes to the synfuel 
    grouping rules themselves. First, EPA proposes to delete the phrase 
    ``..or process'' from Secs. 79.56(e)(4)(ii)(A)(3) and (ii)(B)(3) of the 
    registration regulations. The inclusion in these sections of non-
    conventional processes in addition to non-conventional sources
    
    [[Page 36540]]
    
    as delineaters of non-conventional fuels is potentially misleading. For 
    example, the current language can be interpreted as meaning that heavy, 
    but otherwise conventional crude feedstocks should be considered non-
    conventional (and therefore non-baseline) because they need slight 
    modification prior to sale and transport. The proposed changes at 
    Secs. 79.56(e)(3)(I)(B) and (3)(ii)(B) to delete the phases ``heavy oil 
    deposits'' would narrow these provisions so that they focus on fuels of 
    greater concern to EPA, i.e., fuels derived from non-conventional 
    sources, not from mechanical or chemical production processes on 
    otherwise conventional feedstocks. Comments are requested on this 
    proposed revision.
        In developing the current regulations, EPA sought to segregate non-
    conventional fuels into separate non-baseline groups because of 
    concerns that they were likely to contain unknown contaminants and 
    relatively high levels of trace or background elements. However, 
    limited published information and other data received from the industry 
    suggest that, after processing, some mined syncrude feedstocks may not 
    be significantly different from more conventional crudes.
        Because they must be compatible with conventional refinery 
    processes and must be fungible with conventional fuels, synthetic 
    crudes are reportedly subjected to extensive upgrading to remove heavy 
    residual oils (``tank bottoms''), sulfur, inorganic elements, organo-
    metallic compounds, and clays prior to shipping to refineries. In 
    preparing its product for sale, the syncrude manufacturer typically 
    subjects the mined material to de-salting and coking processes (to 
    remove metal contaminants) and atmospheric and vacuum distillations (to 
    remove tank bottoms and asphaltic residues). Limited product assay 
    results provided to EPA (docket item VI-D-02) indicate that syncrude 
    feedstocks may be lower than typical petroleum crudes in vanadium, 
    nickel, and iron. The industry monitors these characteristics because 
    several catalytic refinery processes are intolerant of metallic 
    contaminants.
        For these reasons, EPA is considering options that would further 
    ease or, possibly, remove some of the current provisions which 
    distinguish some fuels derived from synthetic sources from conventional 
    petroleum fuels. Substantive comments and additional data are needed to 
    help EPA decide whether any of these additional options should be 
    adopted and, if so, to which crude sources they should apply (i.e., 
    some or all mined crude sources, other petrochemical crude sources, or 
    all types of crude feedstocks).
        One alternative provision under consideration would permit a 
    synfuel manufacturer (or group) to submit the results of a thorough 
    chemical analysis of the raw synfuel in conjunction with the Tier 1 
    emission characterization data. This special analysis would emphasize 
    the identification of elevated levels of trace elements or compounds as 
    compared with the base fuel for the respective fuel family. The data 
    would need to include sufficient numbers of fuel samples to be viewed 
    as a valid sampling of the range of the particular crude feedstock and, 
    likewise, would need to cover a broad range of measurable feedstock 
    characteristics. Based on the special Tier 1 analysis, EPA would 
    determine, on a case-by-case basis, whether the synfuel in question 
    should be permitted to join the baseline group for purposes of Tier 2, 
    or whether the synfuel would continue to be categorized as non-
    baseline.
        Another possibility under consideration would simply delete some or 
    all synthetic crude sources from the list of non-conventional sources. 
    This would mean that fuels from these feedstocks would be classified as 
    baseline products. This choice would recognize that it is in the vital 
    interest of the fuels industry to continue to monitor the quality of 
    the synfuels that are transported in the existing pipeline systems. The 
    demands of fungibility would thus be assumed to maintain the quality 
    and similarity of syncrude products on a par with that of more 
    conventional F/FAs.
        Comments are requested on these possible provisions. To the degree 
    that such comments are substantive and provide objective data 
    supporting these alternative provisions, EPA may be more persuaded that 
    its original concerns about synfuel composition may have been 
    exaggerated. Comments are also requested on whether shale-derived 
    synfuels should continue to be categorized as non-baseline, even if 
    fuels from other mined sources (coal, tar sands) are re-categorized as 
    baseline.
    
    C. Other Alternatives
    
        Under a different approach, the grouping system's current 
    definition of synthetic fuels would be retained, but a particular 
    manufacturer's synfuel product would be categorized as baseline or non-
    baseline depending on the proportion of synthetic crude represented in 
    the finished product. As mentioned earlier, the current F/FA 
    regulations do not establish a minimum amount of synthetic crude 
    feedstock which causes a fuel to be categorized as non-baseline. Given 
    the variability in syncrude proportion and the apparent fungibility of 
    many synfuel products with conventional fuels, such a minimum would 
    appear to be appropriate. Under this approach, for example, EPA could 
    specify that a synfuel product will be considered non-baseline only if 
    more than 15 percent by volume of the crude unit charge (i.e., the 
    input to a refinery's crude distillation unit(s)) is composed of 
    synthetic crude or mixed synthetic-conventional crude feedstock.8 
    The choice of 15 percent as the cutoff volume would mean that most of 
    the synfuels produced today would be classified as baseline. Since 
    their manufacturers could thus join the respective baseline group(s), 
    it is likely that some types of synfuel would not routinely undergo 
    testing.9 In practice, any cutoff point adopted in the regulations 
    would probably function as a cap on the syncrude proportion used by 
    synfuel manufacturers.
    ---------------------------------------------------------------------------
    
        \8\ This statement assumes there are no other conditions (e.g., 
    high oxygen content) that would cause the fuel to be non-baseline.
        \9\ However, under the Tier 3 provisions of the F/FA 
    registration regulations, EPA could still require any emission 
    speciation and/or health effects testing it deems necessary if, at 
    some future time, EPA finds that a synfuel or other F/FA is not well 
    represented by the test fuel designated to represent its F/FA group.
    ---------------------------------------------------------------------------
    
        As a variation on this approach, different baseline/non-baseline 
    cutoff points could be established for different kinds of synfuels. 
    Under this variation, fuels containing more than 15 percent content 
    derived from mined sources (e.g., coal, shale, and tar sands) would be 
    considered non-baseline, while fuels containing more than 2 percent 
    content derived from other petrochemical sources (e.g., used motor 
    oils, recovered chemical spills, recycled plastics, and industrial 
    waste streams) would be considered non-baseline. Other cutoff points 
    might also be appropriate.
        EPA requests comment as to the appropriateness of using 15 percent 
    of crude unit charge as the cutoff point for all syncrude feedstocks in 
    determining whether a fuel belongs in a non-baseline group. Comments 
    are also requested on the alternative approach of setting different 
    cutoff points for different types of synfuel. Suggestions for other 
    cutoff points than the ones discussed above, with support and 
    justification for such suggestions, are welcome. In addition, EPA 
    requests information on the amount of syncrude typically represented in 
    synfuels as they leave the refinery, as well as the usual maximum 
    amount of syncrude used in such fuels today. Information is also sought 
    on any differences in these formulation
    
    [[Page 36541]]
    
    practices which may occur as a function of the type of syncrude in 
    question.
    
    VII. De Minimis Provisions
    
    A. Background
    
        In the NPRM published April 15, 1992, EPA raised the possibility of 
    setting de minimis levels for some atypical F/FAs,10 i.e., maximum 
    concentrations or emission rates for atypical elements below which the 
    manufacturers of F/FAs containing such elements would be excused from 
    some or all of the testing requirements for the product. EPA recognized 
    that the extra emission testing requirements proposed for atypical F/
    FAs and the relatively scarce grouping opportunities among such 
    products could subject manufacturers of atypical F/FAs to considerably 
    higher registration costs than other manufacturers. De minimis 
    provisions were discussed as a possible way to reduce these burdens 
    when atypical F/FAs could reasonably be anticipated to have no adverse 
    effects on the public health or the environment (i.e., having no 
    incremental effects relative to the effects of the associated base 
    fuel). The proposed de minimis provision would be limited to specific 
    atypical elements which were generally regarded as not producing overt 
    toxicological effects when inhaled and were present in the product and 
    its emissions in very low quantities.
    ---------------------------------------------------------------------------
    
        \10\In the gasoline and diesel fuel families, an atypical F/FA 
    is one which contains one or more elements other than carbon, 
    hydrogen, oxygen, nitrogen, and/or sulfur.
    ---------------------------------------------------------------------------
    
        When the F/FA test rule was promulgated in May 1994, however, these 
    special de minimis provisions were not finalized. EPA noted that very 
    little speciated chemical compound information was available on 
    atypical F/FAs or their emission products, from which possible atypical 
    F/FA candidates and de minimis levels could be identified. Likewise, 
    little data existed regarding the potential toxicities, exposures, or 
    health risks associated with atypical F/FAs or their emissions. 
    Finally, there was a concern that, in promulgating de minimis levels 
    for atypical elements, EPA's actions would be misinterpreted as setting 
    ``safe'' levels for exposure to various atypical compounds when, in 
    fact, very few applicable, reliable health and safety exposure 
    standards exist for any of the substances of concern.
        However, the practical effect of not promulgating de minimis levels 
    for some atypical F/FAs has been to subject all atypical F/FAs to the 
    same level of scrutiny, even though the overall level of concern about 
    their potential health effects may be markedly different. Thus, under 
    the existing regulations, manufacturers of F/FAs containing such unlike 
    elements as, say, mercury and sodium each have to comply with the same 
    detailed emissions characterization and health effects testing 
    requirements under the same set of conservative assumptions.
        In an attempt to improve this outcome, EPA is thus again proposing 
    a de minimis provision. This proposed provision, described in the next 
    section, differs somewhat from the previous de minimis proposal; 
    however, it does not solve all of the original objections. Reliable 
    quantitative data on the toxicity of most atypical F/FAs and their 
    emission products is still lacking. Nevertheless, the proposal 
    described below is conservative in approach and applicability, and EPA 
    believes it to be a reasonable and prudent alternative to the current 
    program, which allows for no distinctions to be made based on the 
    anticipated health effects and exposures associated with substances 
    which, in fact, vary greatly in chemical composition and rate of usage.
        EPA wishes to emphasize once again that, in proposing de minimis 
    provisions for certain atypical F/FAs, the Agency is not setting a 
    safety level for these F/FAs or their emissions that is meaningful or 
    valid outside a very limited context. The proposal recognizes that a 
    relatively lower level of overall health-related concern exists for 
    some of the atypical elements used in F/FAs, especially under limited 
    exposure conditions at very low concentrations.11 The relatively 
    low production volumes of most atypical F/FAs means that the population 
    at large would potentially be exposed to exceedingly small amounts of 
    the elements for which EPA is proposing to set de minimis levels, 
    particularly after they undergo combustion in motor vehicle engines and 
    the emissions are diluted in air. In combination, these factors make it 
    extremely unlikely that the proposed de minimis provisions could result 
    in adverse public health or welfare outcomes. Nevertheless, should such 
    concerns arise in the future, the proposed de minimis provisions would 
    in no way limit EPA's flexibility under its Tier 3 testing authority to 
    require additional emission characterization and/or toxicologic testing 
    of any affected F/FA, and to take any follow-up regulatory action 
    warranted by the results.
    ---------------------------------------------------------------------------
    
        \11\ However, recent studies suggest that pulmonary injury may 
    be caused by inhalation exposure to substances generally regarded as 
    biologically inactive, if the exposure to such substances is in the 
    form of ``ultrafine'' particles (less than 20nm). See, for example, 
    Oberdorster, G., et al., ``Role of the Alveolar Macrophage in Lung 
    Injury: Studies with Ultrafine Particles,'' Environmental Health 
    Perspectives, 97: 193-199, 1992. While testing to detect the 
    potential occurrence of ultrafine particles of atypical elements in 
    F/FA combustion emissions is outside the scope of Tiers 1 and 2, 
    such testing could be required under Tier 3 if deemed necessary by 
    EPA. EPA's authority to require such testing would not be affected 
    by any de minimis provision for which a fuel or additive might 
    otherwise qualify.
    ---------------------------------------------------------------------------
    
    B. Proposed Provisions
    
    1. Selection of Elements
        A number of atypical elements are reported by their manufacturers 
    to be components of one or more F/FAs occurring on EPA's F/FA 
    registration database. 12 EPA is today proposing de minimis 
    provisions applicable to the following nine atypical elements:
    
        \12\ These elements occur on EPA's F/FA registration database as 
    constituents of some diesel F/FAs, or in aftermarket gasoline 
    additives which were ``grandfathered'' when restrictions on such 
    atypical elements were implemented. These ``grandfathering'' 
    provisions were previously reviewed in the NPRM and Reopening 
    Notices for the F/FA Registration rulemaking (see 57 FR 13168 and 59 
    FR 8886).
    ---------------------------------------------------------------------------
    
    Aluminum (Al)
    Boron (B)
    Calcium (Ca)
    Sodium (Na)
    Zinc (Zn)
    Magnesium (Mg)
    Phosphorus (P)
    Potassium (K)
    Iron (Fe)
    
        These nine elements were selected by evaluating a number of 
    factors. First, any element (alone or in compound form) known or 
    believed to have significant inhalation-related health effects or to be 
    a precursor to emission species of particular concern was eliminated as 
    a candidate for the de minimis provision. For example, elements in the 
    halogen family were eliminated because of their occurrence in toxic 
    chemical species (e.g., halogenated methane compounds) and/or their 
    potential role in forming dioxin and dioxin-like compounds. Other 
    examples include manganese, mercury, tin, and lead, which were 
    eliminated from consideration because of their neurologic effects, and 
    cobalt, platinum, silicon, and antimony, which were eliminated because 
    of concerns about their potential respiratory effects in some chemical 
    forms.
        EPA also examined any existing exposure assessment values which may 
    exist for the atypical elements (or compounds containing them), 
    including industrial exposure guidelines such as Threshold Limit Value 
    (TLV), Permissible Exposure Limit (PEL),
    
    [[Page 36542]]
    
    Recommended Exposure Limit (REL), and Health Effects Assessment Summary 
    Table (HEAST) values. Recognizing that none of these values is 
    specifically intended for use in estimating the toxic potential of 
    long-term continuous exposures to the general population, EPA looked at 
    them only as general, relative indicators of potential toxicity, to be 
    viewed in conjunction with each other and subject to conservatively-
    applied scientific judgment. In this way, EPA divided the atypical 
    elements into two groups. For one group, containing the nine elements 
    listed above, it appeared that limited exposures to ambient 
    concentrations of at least 0.1 milligrams of the elements per cubic 
    meter of air (mg/m3) could occur without raising appreciable 
    concerns. For all the remaining atypical elements, specific public 
    health and/or welfare effects issues were identified and/or the 
    exposure assessment values generally indicated that health-related 
    concerns may arise at exposure levels considerably lower than 0.1 mg/
    m3. EPA decided that de minimis provisions would therefore not be 
    proposed to apply to any of the elements in the latter group.
        EPA requests comments on the appropriateness of establishing a de 
    minimis provision for atypical F/FAs, given the acknowledged lack of 
    reliable quantitative toxicity data for most of the substances 
    concerned. Specific comments are also requested on the approach 
    described above for differentiating between high- and low-concern 
    atypical elements, and on the nine elements proposed as candidates for 
    the potential de minimis provision. Should some of these nine elements 
    be deleted from the list?
    2. de minimis Level
        The de minimis provision could theoretically be structured to apply 
    either to (1) the amount of an atypical element in the ``raw'' state 
    (i.e., in the uncombusted fuel/additive mixture), or (2) the amount 
    occurring in the combustion emissions. While the emissions approach 
    might appear to provide a more direct measurement of the substances of 
    concern, EPA believes that, in this instance, the raw mixture approach 
    provides a simpler and ultimately more effective mechanism for 
    manufacturers to apply and for EPA to evaluate and enforce. Basing the 
    de minimis provision on the concentration of atypical elements in the 
    raw state avoids a number of complicated issues that would arise if the 
    provision were based on measurement of atypical elements in the 
    emissions, e.g.: (1) How much accumulated mileage would be required 
    before generating, sampling, and analyzing the emissions for possible 
    de minimis qualification; (2) how many samples would be needed; (3) 
    once sampled, what kinds of emissions analyses would be required; (4) 
    how accurate and sensitive would the detection equipment have to be; 
    and (5) how EPA could efficiently confirm the results?
        As discussed above, for the group of nine candidate elements, it 
    appears that ambient air concentrations of at least 0.1 mg/m \3\ (100 
    g/m3) could occur for limited exposures without raising 
    significant concerns. The concentration of a particular elemental 
    constituent of a fuel/additive mixture which, after combustion in an 
    engine, would yield a given concentration of the element in air depends 
    on a number of factors and relationships, e.g., the chemical 
    characteristics of the element and its host compound(s), the nature of 
    the base fuel, engine type, and driving cycle involved, the scale and 
    complexity of the ambient environment, etc. Thus, corresponding fuel 
    and air concentrations cannot be calculated with precision. However, 
    based on a series of approximations and conservative assumptions, EPA 
    estimates that a concentration of 25 parts per million (ppm) of 
    atypical element(s) in a base fuel (i.e., 0.0025 percent by weight) 
    13 should generally yield a concentration in air of less than 0.1 
    mg/m3, even under the theoretical assumption that the 
    characteristics of the ambient air are a direct function of the 
    combustion emissions of a single vehicle operating on the atypical F/FA 
    mixture.14
    ---------------------------------------------------------------------------
    
        \13\ These measurements refer to the specified elements 
    themselves, not to the weights of the compounds in which these 
    elements may be bound.
        \14\ Specifically, the very conservative assumption is made that 
    the ambient air consists of fully-passed-through emissions of the 
    atypical element(s) diluted by a factor of 1 to 2,000.
    ---------------------------------------------------------------------------
    
        Thus, EPA is today proposing a de minimis provision based on a 
    qualifying level of 25 ppm in base fuel, disregarding trace amounts of 
    these elements which may exist in the unadditized base fuel. 
    Specifically, if an atypical additive contains no atypical elements 
    other than Al, B, Ca, Fe, Mg, P, K, Na, and/or Zn, and if the total of 
    these elements added to base fuel does not exceed 25 ppm by weight when 
    the additive is mixed into the applicable base fuel at the highest 
    treatment rate recommended by the additive manufacturer, then the 
    additive (and F/FA mixture) would qualify for the de minimis provision. 
    Comments on this general approach and on the proposed de minimis level 
    are requested. The special allowances for which such F/FAs would 
    qualify are described in the next section.
    3. Allowances for Qualifying F/FAs
        EPA proposes that manufacturers of atypical F/FAs which qualify for 
    the de minimis provision, under the criteria specified above, would be 
    excused from the testing requirements included in Tier 2 (Sec. 79.53). 
    This is the same allowance provided by the existing regulation 
    (Sec. 79.58(d)(3)) for atypical F/FAs produced by small manufacturers 
    (i.e., those with less than $10 million in annual revenue). The de 
    minimis provision would not excuse manufacturers from the Tier 1 
    emission characterization requirements that pertain specifically to 
    atypical F/FAs, i.e., the identification and measurement of individual 
    emission products containing the atypical elements 
    (Sec. 79.52(b)(2)(iv) and, if applicable, Sec. 79.52(b)(3)(iv)). 
    Notwithstanding the de minimis provision nor any other special 
    provisions for which a F/FA may qualify, the provisions of Tier 3 
    permit EPA to require any additional testing at its discretion, 
    including testing which might have been required in the absence of the 
    special provision.
        Comments on this proposal to excuse qualifying F/FAs from Tier 2 
    requirements are requested. See the proposed regulatory language at 
    Sec. 79.58(f). Comments are also requested on the scope and specific 
    details of the proposed de minimis provision in general. Any 
    suggestions for easing the provision (i.e., adding elements or 
    increasing the de minimis level) should be accompanied by data to 
    justify such a change. This proposal is deliberately based on 
    conservative assumptions and, EPA requests that commenters provide 
    solid supporting data to justify any suggested changes which would 
    widen the applicability of the proposed provision. EPA is unlikely to 
    adopt any such suggestions from commenters without such data.
    
    VIII. Minor Changes to the Testing Requirement for Registration
    
        Minor changes to the testing requirements are proposed. In the 
    final rules section of this Federal Register, these changes are being 
    promulgated as a direct final rule without prior proposal, because they 
    are viewed as noncontroversial and no adverse comments are anticipated. 
    A detailed rationale for these proposed changes is set forth in the 
    direct final rule. If an adverse comment on request for hearing is not 
    received in response to the direct final rule, no further activity is 
    contemplated in relation to this
    
    [[Page 36543]]
    
    proposed rule. If an adverse comment or hearing request is received, 
    the portion of the direct final rule at issue will be withdrawn and all 
    public comments received will be addressed in a subsequent final rule 
    based on this proposed rule. EPA will not institute a second comment 
    period on these minor changes. Any parties interested in commenting 
    should do so at this time.
    
    IX. Tier 1 Exposure Analysis
    
        Section 79.52(c) requires a manufacturer, using annual and 
    projected production volume, marketing, and distribution data (already 
    required to submitted as a condition for registration), to provide a 
    qualitative discussion of the potential public health exposures to the 
    emission products of its fuels and/or additives. Upon review, EPA has 
    concluded that this qualitative discussion will add little relevant 
    information beyond the registration data. Therefore, it is proposed to 
    delete Sec. 79.52(c) and modify introductory paragraph 79.52(a) 
    accordingly.
    
    X. Environmental and Economic Impacts
    
        The environmental impacts of today's action are minimal, as 
    discussed above. Additionally, economic impacts are beneficial to 
    affected manufacturers due to the additional flexibility afforded in 
    today's notice. Minimal anti-competitive effects are expected. A 
    regulatory support document which presents EPA's analysis of the cost 
    impacts of the May 1994 rule is available in Public Docket A-90-07 
    located at Room M-1500, Waterside Mall (ground floor), U.S. 
    Environmental Protection Agency, 401 M St. S.W., Washington, D.C. 
    20460.
    
    XI. Regulatory Flexibility Analysis
    
        EPA has determined that it is not necessary to prepare a regulatory 
    flexibility analysis in connection with this rule. This rule will 
    reduce regulatory burdens on small businesses by reducing or 
    eliminating the reporting and testing requirements for many small 
    businesses. EPA has determined that this rule will not have a 
    significant adverse economic impact on a substantial number of small 
    businesses.
    
    XII. Administrative Designation
    
        Pursuant to Executive Order 12866 (58 FR 51735 [October 4, 1993]), 
    the Agency must determine whether a regulatory action is 
    ``significant'' and therefore subject to OMB review and the 
    requirements of the executive order. The order defines ``significant 
    regulatory actions as one that is likely to result in a rule that may:
        (1) Have an annual effect on the economy of $100 million or more or 
    adversely affect in a material way the economy, a sector of the 
    economy, productivity, competition, jobs, the environment, public 
    health or safety, or State, local or tribal governments or communities;
        (2) Create a serious inconsistency or otherwise interfere with an 
    action taken or planned by another agency;
        (3) Materially alter the budgetary impact of entitlement, grants, 
    user fees, or loan programs or the rights and obligations of recipients 
    thereof; or
        (4) Raise novel legal or policy issues arising out of legal 
    mandates, the President's priorities, or the principles set forth in 
    the Executive Order.
        Pursuant to the terms of Executive Order 12866, it has been 
    determined that this notice is proposal rulemaking is not a 
    ``significant regulatory action''. The proposals in this notice will 
    decrease the number of parties to which these regulations apply and 
    will reduce the requirements and costs of other parties subject to the 
    regulations.
    
    XIII. Paperwork Reduction Act
    
        The Paperwork Reduction Act of 1980, 44 U.S.C. 3501 et seq., and 
    implementing regulations, 5 CFR Part 1320, do not apply to this action 
    as it does not involve the collection of information as defined 
    therein.
    
    XIV. Unfunded Mandates Act
    
        Under section 202 of the Unfunded Mandates Reform Act of 1995 
    (``Unfunded Mandates Act''), signed into law on March 22, 1995, EPA 
    must prepare a budgetary impact statement to accompany any proposed or 
    final rule that includes a Federal mandate that may result in 
    expenditure by State, local, and tribal governments, in the aggregate; 
    or by the private sector, of $100 million or more. Under Section 205, 
    EPA must select the most cost-effective and least burdensome 
    alternative that achieves the objectives of the rule and is consistent 
    with statutory requirements. Section 203 requires EPA to establish a 
    plan for informing and advising any small governments that may be 
    significantly or uniquely impacted by the rule.
        EPA has determined that the action promulgated today does not 
    include a federal mandate that may result in estimated costs of $100 
    million or more to either State, local, or tribal governments in the 
    aggregate, or to the private sector. This proposed action does not 
    establish regulatory requirements that may significantly or uniquely 
    affect small governments. In fact, this proposed action has the net 
    effect of reducing the burden of the fuel and fuel additive 
    registration program on regulated entities. Therefore, the requirements 
    of the Unfunded Mandates Act do not apply to this action.
    
    XV. Statutory Authority
    
        The statutory authority for this proposed rule is provided by 
    sections 205 (b) and (c), 211, and 301(a) of the Clean Air Act as 
    amended (42 U.S.C. 7524 (b) and (c), 7545, and 7601(a), Public Law 95-
    95).
    
    List of Subjects in 40 CFR Part 79
    
        Environmental protection, Fuel, Fuel additive, Gasoline, Motor 
    vehicle pollution, Penalties.
    
        Dated: June 27, 1996.
    Carol M. Browner,
    Administrator.
    [FR Doc. 96-17550 Filed 7-10-96; 8:45 am]
    BILLING CODE 6560-50-P
    
    
    

Document Information

Published:
07/11/1996
Department:
Environmental Protection Agency
Entry Type:
Proposed Rule
Action:
Proposed rule.
Document Number:
96-17550
Dates:
Written comments on the issues presented in this document will be accepted until August 12, 1996.
Pages:
36535-36543 (9 pages)
Docket Numbers:
FRL-5532-5
PDF File:
96-17550.pdf
CFR: (8)
40 CFR 211(a)
40 CFR 211(b)(2)
40 CFR 79.58(d)
40 CFR 79.2(e)
40 CFR 79.2(e))
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