95-20481. Approval and Promulgation of Implementation Plans; California State Implementation Plan Revision, San Joaquin Valley Nonattainment Area, Transportation Control Measure Replacement  

  • [Federal Register Volume 60, Number 160 (Friday, August 18, 1995)]
    [Rules and Regulations]
    [Pages 43015-43017]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 95-20481]
    
    
    
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    ENVIRONMENTAL PROTECTION AGENCY
    40 CFR Part 52
    
    [CA 146-1-7134a; FRL-5272-2]
    
    
    Approval and Promulgation of Implementation Plans; California 
    State Implementation Plan Revision, San Joaquin Valley Nonattainment 
    Area, Transportation Control Measure Replacement
    
    AGENCY: Environmental Protection Agency (EPA).
    
    ACTION: Direct final rule.
    
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    SUMMARY: The Environmental Protection Agency (EPA) is taking direct 
    final action to approve a revision to the California State 
    Implementation Plan (SIP) for ozone for the San Joaquin Valley, which 
    was submitted to EPA on March 2, 1995. This direct final approval 
    action approves the ``Railroad Grade Separations'' transportation 
    control measure (TCM) adopted by the State of California on January 13, 
    1995. This TCM supersedes the ``Controls on Extended Vehicle Idling'' 
    transportation control measure (TCM) in the federally-approved 1982 
    California ozone SIP. The intended effect of direct final approval of 
    this SIP revision is to control emissions of ozone precursors and 
    carbon monoxide in accordance with the requirements of the Clean Air 
    Act, as amended in 1990 (CAA or 1990 Act).
    
    DATES: This direct final action is effective on October 17, 1995 unless 
    adverse or critical comments are received by September 18, 1995. If the 
    effective date is delayed, a timely notice will be published in the 
    Federal Register.
    
    ADDRESSES: Copies of the State submittal and EPA's technical support 
    document are available for public inspection at EPA's Region IX office 
    during normal business hours. Copies of the submitted SIP revision are 
    available for inspection at the following locations:
    
    Mobile Sources Section (A-2-1), Air and Toxics Division, U.S. 
    Environmental Protection Agency, Region IX, 75 Hawthorne Street, San 
    Francisco, CA 94105
    Environmental Protection Agency, Air Docket (6102), ANR 443, 401 ``M'' 
    Street SW., Washington, DC 20460
    California Air Resources Board, 2020 ``L'' Street, Sacramento, CA 92123
    San Joaquin Valley Unified Air Pollution Control District, 1999 
    Tuolomne Street, Suite #200, Fresno, CA 93721
    
    FOR FURTHER INFORMATION CONTACT: Deborah Schechter, Mobile Sources 
    Section, Air and Toxics Division, U.S. Environmental Protection Agency, 
    Region IX, 75 Hawthorne Street, San Francisco, CA 94105, Telephone: 
    (415) 744-1227.
    
    SUPPLEMENTARY INFORMATION:
    
    I. Background
    
        On December 1, 1982, the State of California submitted the 1982 
    ozone and carbon monoxide (CO) SIP for the San Joaquin County portion 
    of the San Joaquin Valley nonattainment area. EPA approved California's 
    1982 ozone and CO SIP for San Joaquin County and published the Federal 
    Register document on December 20, 1983 (48 FR 56215). The 1982 San 
    Joaquin County SIP, or Air Quality Management Plan (AQMP), was adopted 
    by the San Joaquin County Board of Supervisors on June 22, 1982. The 
    AQMP included a transportation control measure (TCM) designated as 
    ``Controls on Extended Vehicle Idling''. This TCM was intended to 
    reduce vehicular emissions from extended idling at railroad crossings 
    by requiring a signing system at all railroad crossings asking 
    motorists to turn off their engines for waits longer than one minute. 
    Site design improvements during the planning stage to mitigate 
    circumstances where excessive idling could occur were also required in 
    this TCM. This TCM was never implemented.
        On March 20, 1991, the air pollution control districts in the San 
    Joaquin Valley, including the San Joaquin County district, merged into 
    the San Joaquin Valley Unified Air Pollution Control District 
    (SJVUAPCD). The SJVUAPCD was authorized to exercise all powers and 
    carry out all duties of air pollution control districts within the 
    Valley as provided by state and federal law.
        On March 2, 1995, the California Air Resources Board (CARB) 
    submitted to EPA a revision to the SIP for ozone for the San Joaquin 
    Valley nonattainment area entitled San Joaquin Valley Transportation 
    Control Measure Replacement. The SIP revision was adopted by the 
    SJVUAPCD on September 14, 1994 and later by CARB on January 13, 1995. 
    The SIP revision replaces the ``Controls on Extended Vehicle Idling'' 
    TCM with the ``Railroad Grade Separations'' TCM. In its March 2, 1995 
    letter to EPA, CARB requested prompt handling of the submittal because 
    of its implications for conformity determinations.
        In a letter to the State dated July 24, 1995, EPA found the 
    submittal of the San Joaquin Valley Transportation Control Measure 
    Replacement complete.
    
    II. Summary and Evaluation of SIP Revision
    
        Section 176(c) of the Clean Air Act (CAA) prohibits any 
    metropolitan planning organization (MPO) designated under section 134 
    of title 23 of the United States Code, from approving any 
    transportation project, program, or plan which does not conform to a 
    SIP approved under section 110 of the CAA. The federal transportation 
    conformity regulation (40 CFR Part 51, subpart T) implements the 
    transportation-related requirements of section 176(c). Section 51.418 
    of the regulation requires the 
    
    [[Page 43016]]
    transportation plan and program to provide for the timely 
    implementation of transportation control measures (TCMs) from the 
    applicable federally-approved implementation plan. A TCM is defined in 
    section 51.392 as any measure that is specifically identified and 
    committed to in the applicable implementation plan that is either one 
    of the types listed in section 108 of the CAA, or any other measure for 
    the purpose of reducing emissions or concentration of air pollutants 
    from transportation sources by reducing vehicle use or changing traffic 
    flow or congestion conditions.
        Under the federal transportation conformity rule, before an MPO or 
    the Department of Transportation (DOT) can approve a transportation 
    plan or program, a conformity determination must be made which shows 
    timely implementation of all of the TCMs in the approved SIP and 
    demonstrates that all obstacles to TCM implementation have been 
    removed. In the case of San Joaquin County, the TCMs identified in the 
    1982 SIP must meet the timely implementation criterion in order for the 
    transportation plan and program to be approved and projects to be 
    funded. Because the ``Controls on Extended Vehicle Idling'' TCM was 
    never implemented and is not expected to be implemented, this TCM 
    cannot be found to meet the criterion of timely implementation.
        The preamble to the conformity regulation at 58 FR 62198 states 
    that if the original project sponsor or the cooperative planning 
    process decides not to implement the TCM or decides to replace it with 
    another TCM, a SIP revision which removes the TCM will be necessary 
    before plans and programs may be found in conformity. (In order to be 
    approved by EPA, such a SIP revision must include substitute measures 
    that achieve emissions reductions sufficient to meet all applicable 
    requirements of the CAA, including section 110(l).)
        In order to meet the requirement of the conformity regulation for 
    timely implementation of TCMs and to enable FHWA to approve future 
    transportation plans and programs for San Joaquin County, the San 
    Joaquin County Council of Governments (SJCOG), the SJVUAPCD, and the 
    State of California have opted to revise the SIP to delete the 
    ``Controls on Extended Vehicle Idling'' TCM and replace the measure 
    with an alternative TCM for which timely implementation can be 
    demonstrated. On March 2, 1995, California submitted a SIP revision for 
    San Joaquin County which replaces the ``Controls on Extended Vehicle 
    Idling'' TCM with the ``Railroad Grade Separations'' TCM.
        The TCM includes two railroad grade separations to be constructed 
    in the Stockton Urbanized Area:
    
    --Hammer Lane at Southern Pacific RR (scheduled completion in 1997)
    --Hammer Lane at Union Pacific RR (scheduled completion in 1997)
    
        The SIP revision anticipated the following emissions reductions 
    from these projects: 1.2 kg total organic gases (TOG) per day, 4.0 kg 
    nitrogen oxides (NoX) per day, and 20 kg carbon monoxide (CO) per 
    day.
        The 1982 SIP took credit only for the CO emissions reductions 
    expected from the implementation of the ``Controls on Extended Vehicle 
    Idling'' TCM. The expected reduction was 0.017 tons/day or 15.4 kg/day 
    of CO in 1987. Thus, the ``Railroad Grade Separations'' TCM is expected 
    to result in greater reductions in CO, TOG, and NOX than were 
    credited to the ``Controls on Extended Vehicle Idling'' TCM.
        In addition, the SJCOG and the SJVUAPCD have found that the 
    emissions reductions that would result if the ``Controls on Extended 
    Vehicle Idling'' TCM were implemented today are likely to be less than 
    originally projected. First, the TCM was voluntary. Emissions 
    reductions were calculated based on the assumption that motorists would 
    obey the signs and turn off their engines for waiting times of over one 
    minute, when, in reality, motorists may have kept their engines idling 
    due to a lack of an enforcement mechanism for the measure. In addition, 
    changes in motor vehicle technology have led to a reduced benefit from 
    this TCM. Motor vehicle engine technology has led to reduced idling 
    emissions from today's cars. As a result, shutting off idling vehicles 
    and starting them back up again a few minutes later will result in 
    fewer emissions reductions today than in 1982 when the TCM was included 
    in the SIP.
        Because the ``Railroad Grade Separations'' TCM is expected to 
    result in greater emissions reductions than the ``Controls on Extended 
    Vehicle Idling'' TCM, the SIP revision does not weaken the federally-
    approved 1982 SIP.
    
    III. EPA's Action
    
        This action approves the ``Railroad Grade Separations'' TCM, 
    submitted to EPA by the State of California on March 2, 1995 for 
    inclusion in the California Ozone SIP for the San Joaquin Valley. This 
    TCM supersedes the ``Controls on Extended Vehicle Idling'' TCM in the 
    1982 SIP. This latter TCM is, therefore, no longer subject to the 
    timely implementation criterion of the conformity regulation. EPA has 
    evaluated the submitted TCM and has determined that it is consistent 
    with the CAA, EPA regulations, and EPA policy. Therefore, the San 
    Joaquin Valley Transportation Control Measure Replacement SIP revision 
    is being approved under section 110(k)(3) of the CAA as meeting the 
    requirements of sections 110(a) and (l) and part D.
        Nothing in this action should be construed as permitting or 
    allowing or establishing a precedent for any future implementation 
    plan. Each request for revision to the state implementation plan shall 
    be considered separately in light of specific technical, economic, and 
    environmental factors and in relation to relevant statutory and 
    regulatory requirements.
        EPA is publishing this action without prior proposal because the 
    Agency views this as a noncontroversial amendment and anticipates no 
    adverse comments. However, in a separate document published elsewhere 
    in this Federal Register, the EPA is proposing to approve the SIP 
    revision should adverse or critical comments be filed. This action will 
    be effective October 17, 1995, unless, by September 18, 1995, adverse 
    or critical comments are received.
        If the EPA receives such comments, this action will be withdrawn 
    before the effective date by publishing a subsequent document that will 
    withdraw the final action. All public comments received will then be 
    addressed in a subsequent final rule based on the proposed rule 
    published elsewhere in this Federal Register. The EPA will not 
    institute a second comment period on this action. Any parties 
    interested in commenting on this action should do so at this time. If 
    no such comments are received, the public is advised that this action 
    will be effective October 17,1995.
    
    IV. Regulatory Process
    
        Under the Regulatory Flexibility Act, 5 U.S.C. 600 et seq., EPA 
    must prepare a regulatory flexibility analysis assessing the impact of 
    any proposed or final rule on small entities. 5 U.S.C. 603 and 604. 
    Alternatively, EPA may certify that the rule will not have a 
    significant impact on a substantial number of small entities. Small 
    entities include small businesses, small not-for-profit enterprises and 
    government entities with jurisdiction over population of less than 
    50,000.
        SIP approvals under sections 110 and 301(a) and subchapter I, Part 
    D of the CAA do not create any new requirements, but simply approve 
    
    [[Page 43017]]
    requirements that the State is already imposing. Therefore, because the 
    Federal SIP-approval does not impose any new requirements, I certify 
    that it does not have a significant impact on any small entities 
    affected. Moreover, due to the nature of the Federal-state relationship 
    under the CAA, preparation of a regulatory flexibility analysis would 
    constitute Federal inquiry into the economic reasonableness of state 
    action. The CAA forbids EPA to base its actions concerning SIPs on such 
    grounds. Union Electric Co. v. U.S. E.P.A., 427 U.S. 246, 256-66 (S. 
    Ct. 1976); 42 U.S.C. 7410 (a)(2).
        The OMB has exempted this action from review under Executive Order 
    12866.
    
    V. Unfunded Mandates
    
        Under sections 202, 203 and 205 of the Unfunded Mandates Reform Act 
    of 1995 (``Unfunded Mandates Act''), signed into law on March 22, 1995, 
    EPA must undertake various actions in association with proposed or 
    final rules that include a Federal mandate that may result in estimated 
    costs of $100 million or more to the private sector, or to State, 
    local, or tribal governments in the aggregate.
        Through submission of this state implementation plan revision, the 
    State and any affected local or tribal governments have elected to 
    adopt the program provided for under sections 110 and 182(b) of the 
    Clean Air Act. These rules may bind State, local, and tribal 
    governments to perform certain actions and also require the private 
    sector to perform certain duties. To the extent that the rules being 
    approved by this action will impose any mandate upon the State, local, 
    or tribal governments either as the owner or operator of a source or as 
    a regulator, or would impose any mandate upon the private sector, EPA's 
    action will impose no new requirements; such sources are already 
    subject to these requirements under State law. Accordingly, no 
    additional costs to State, local, or tribal governments, or to the 
    private sector, result from this action. EPA has also determined that 
    this direct final action does not include a mandate that may result in 
    estimated costs of $100 million or more to State, local, or tribal 
    governments in the aggregate or to the private sector.
    
    List of Subjects in 40 CFR Part 52
    
        Environmental protection, Air pollution control, Hydrocarbons, 
    Incorporation by reference, Intergovernmental relations, Nitrogen 
    dioxide, Ozone, Reporting and recordkeeping requirements, Volatile 
    organic compounds.
    
        Note: Incorporation by reference of the State Implementation 
    Plan for the State of California was approved by the Director of the 
    Federal Register on July 1, 1982.
    
        Dated: July 26, 1995.
    Jeff Zelikson,
    Acting Regional Administrator.
    
        Part 52, chapter I, title 40 of the Code of Federal Regulations is 
    amended as follows:
    
    PART 52--[AMENDED]
    
        1. The authority citation for Part 52 continues to read as follows:
    
        Authority: 42 U.S.C. 7401-7671q.
    
    Subpart F--California
    
        2. Section 52.220 is amended by adding paragraph (c)(223) to read 
    as follows:
    
    
    Sec. 52.220  Identification of plan.
    
    * * * * *
        (c) * * *
        (223) Revised ozone transportation control measure (TCM) for the 
    San Joaquin Valley submitted on March 2, 1995, by the Governor's 
    designee.
        (i) Incorporation by reference.
        (A) Railroad Grade Separations TCM, adopted on September 14, 1994.
    
    [FR Doc. 95-20481 Filed 8-17-95; 8:45 am]
    BILLING CODE 6560-50-P
    
    

Document Information

Effective Date:
10/17/1995
Published:
08/18/1995
Department:
Environmental Protection Agency
Entry Type:
Rule
Action:
Direct final rule.
Document Number:
95-20481
Dates:
This direct final action is effective on October 17, 1995 unless adverse or critical comments are received by September 18, 1995. If the effective date is delayed, a timely notice will be published in the Federal Register.
Pages:
43015-43017 (3 pages)
Docket Numbers:
CA 146-1-7134a, FRL-5272-2
PDF File:
95-20481.pdf
CFR: (1)
40 CFR 52.220