98-23817. Approval and Promulgation of Implementation Plans; California State Implementation Plan Revision, Bay Area Air Quality Management District  

  • [Federal Register Volume 63, Number 172 (Friday, September 4, 1998)]
    [Rules and Regulations]
    [Pages 47179-47182]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 98-23817]
    
    
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    ENVIRONMENTAL PROTECTION AGENCY
    
    40 CFR Part 52
    
    [CA 20-7-0084a FRL-6138-8]
    
    
    Approval and Promulgation of Implementation Plans; California 
    State Implementation Plan Revision, Bay Area Air Quality Management 
    District
    
    AGENCY: Environmental Protection Agency (EPA).
    
    ACTION: Direct final rule.
    
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    SUMMARY: EPA is taking direct final action on revisions to the 
    California State Implementation Plan. The revisions concern rules from 
    the Bay Area Air Quality Management District (BAAQMD). The rules 
    control particulate matter (PM) emissions from sources of open burning 
    and visible emissions. This approval action will incorporate these 
    rules into the federally approved SIP. The intended effect of approving 
    these rules is to regulate emissions of PM in accordance with the 
    requirements of the Clean Air Act, as amended in 1990 (CAA or the Act). 
    Thus, EPA is finalizing the approval of
    
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    these revisions into the California SIP under provisions of the CAA 
    regarding EPA action on SIP submittals and SIPs for national primary 
    and secondary ambient air quality standards.
    
    DATES: This rule is effective on November 3, 1998 without further 
    notice, unless EPA receives relevant adverse comments by October 5, 
    1998. If EPA receives such comments, then it will publish a timely 
    withdrawal in the Federal Register informing the public that this rule 
    did take effect.
    
    ADDRESSES: Comments must be submitted to Andrew Steckel at the Region 
    IX office listed below. Copies of the rule revisions and EPA's 
    evaluation report for each rule are available for public inspection at 
    EPA's Region IX office during normal business hours. Copies of the 
    submitted rule revisions are available for inspection at the following 
    locations:
    
    Rulemaking Office (AIR-4), Air Division, U.S. Environmental Protection 
    Agency, Region IX, 75 Hawthorne Street, San Francisco, CA 94105
    Environmental Protection Agency, Air Docket (6102), 401 ``M'' Street, 
    SW, Washington, DC 20460
    California Air Resources Board, Stationary Source Division, Rule 
    Evaluation Section, 2020 ``L'' Street, Sacramento, CA 95812
    Bay Area Air Quality Management District, 939 Ellis Street, San 
    Francisco, CA 94109
    
    FOR FURTHER INFORMATION CONTACT: Karen Irwin, Rulemaking Office, AIR-4, 
    Air Division, U.S. Environmental Protection Agency, Region IX, 75 
    Hawthorne Street, San Francisco, CA 94105, Telephone: (415) 744-1903
    
    SUPPLEMENTARY INFORMATION:
    
    I. Applicability
    
        The rules being approved into the California SIP include: BAAQMD 
    Regulation 5, Open Burning, and Regulation 6, Visible Emissions. These 
    rules were submitted by the California Air Resources Board to EPA on 
    March 10, 1998 and May 13, 1991, respectively.
    
    II. Background
    
        On March 3, 1978, EPA promulgated a list of total suspended 
    particulate (TSP) nonattainment areas under the provisions of the 1977 
    Clean Air Act (1977 CAA or pre-amended Act, 43 FR 8964; 40 CFR Part 
    81). On July 1, 1987 (52 FR 24672) EPA replaced the TSP standards with 
    new PM standards applying only to PM up to 10 microns in diameter (PM-
    10).1 On November 15, 1990, amendments to the 1977 CAA were 
    enacted. Pub. L. 101-549, 104 Stat. 2399, codified at 42 U.S.C. 7401-
    7671q. On the date of enactment of the 1990 CAA Amendments, PM-10 areas 
    meeting the qualifications of section 107(d)(4)(B) of the Act were 
    designated nonattainment by operation of law and classified as moderate 
    pursuant to section 188(a). The San Francisco Bay Area Air Basin was 
    not among the areas designated nonattainment for TSP or PM-10.
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        \1\ On July 18, 1997 EPA promulgated revised and new standards 
    for PM-10 and PM-2.5 (62 FR 38651). EPA has not yet established 
    specific plan and control requirements for the revised and new 
    standards.
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        As part of updating the California SIP, the State of California 
    submitted many PM-10 rules for incorporation into the California SIP on 
    March 10, 1998 and May 13, 1991, including the rules being acted on in 
    this document. This document addresses EPA's direct-final action for 
    BAAQMD Regulation 5, Open Burning, and Regulation 6, Visible Emissions. 
    BAAQMD adopted Regulation 5 on November 11, 1994 and Regulation 6 on 
    December 19, 1990. These submitted rules were found to be complete on 
    May 21, 1998 and July 10, 1991, respectively, pursuant to EPA's 
    completeness criteria that are set forth in 40 CFR part 51, Appendix V 
    2 and are being finalized for approval into the SIP.
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        \2\ EPA adopted the completeness criteria on February 16, 1990 
    (55 FR 5830) and, pursuant to section 110(k)(1)(A) of the CAA, 
    revised the criteria on August 26, 1991 (56 FR 42216).
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        Regulation 5 controls emissions from open burning and Regulation 6 
    is a generally applicable rule that controls visible emissions from a 
    variety of sources. PM emissions can harm human health and the 
    environment. This rule was originally adopted as part of BAAQMD's 
    effort to maintain the National Ambient Air Quality Standard (NAAQS) 
    for PM-10. The following is EPA's evaluation and final action for these 
    rules.
    
    III. EPA Evaluation and Action
    
        In determining the approvability of a PM-10 rule, EPA must evaluate 
    the rule for consistency with the requirements of the CAA and EPA 
    regulations, as found in section 110 and 40 CFR part 51 (Requirements 
    for Preparation, Adoption, and Submittal of Implementation Plans). EPA 
    must also ensure that rules are enforceable and strengthen or maintain 
    the SIP's control strategy.
        On September 2, 1981, EPA approved into the SIP a version of 
    Regulation 5, Open Burning and a version of Regulation 6, Visible 
    Emissions, that had been adopted by BAAQMD on September 5, 1979. 
    BAAQMD's submitted Regulation 5, Open Burning, includes the following 
    significant changes from the current SIP:
         Modifies the definition of ``permissive burn day'' to 
    exclude days when open burning is estimated to adversely affect ambient 
    air quality or downwind population. This language replaces the SIP-
    approved rule's more vague language that a permissive burn is declared 
    when air pollution caused by open burning may be minimized.
         Modifies the definition of hazardous material to include 
    natural vegetation or native growth cleared to maintain a firebreak 
    around any building to reduce risk of wildfire.
         Adds new requirements for agricultural fires set for the 
    purpose of disposing grain stubble where both grain and vegetable crops 
    are harvested during the same calendar year.
         Adds acreage burning allotment limitations on a daily 
    basis for stubble fires and prohibits fires prior to 10:00 AM. Limits 
    fire ignition techniques (to relatively clean techniques) unless field 
    conditions do not lend themselves to these techniques. Adds a crackle 
    moisture test requirement following rain. Requires a prior acreage 
    burning allocation from the APCO before a stubble burn occurs. Adds a 
    ``crackle'' test procedure for appraisal of field crop fuel moisture of 
    stubble or straw.
         Allows fires for disposal of hazardous materials in 
    compliance with Section 4291 of the Public Resources Code provided all 
    of a series of additional conditions are satisfied.
         Limits the time of day wildlife management fires can be 
    set and establishes acreage limitations for burning.
         Adds provisions to limit the amount of waste propellants, 
    explosives and pyrotechnics that can be burned per facility, requires 
    documentation of burns and requires installation of permitted on-site 
    and off-site waste treatment systems by January 1, 1997. The submitted 
    rule prohibits burning of waste propellants after January 1997.
         Adds a provision for burning to dispose of contraband 
    requiring prior notification to the BAAQMD.
         Adds provisions for wildland vegetation management 
    burning, filmmaking burning and civic event burning. The submitted rule 
    requires prior approval of burn plans by the BAAQMD for these types of 
    fires.
         Eliminates a reporting requirement to the District 
    following a burn for written records indicating the location
    
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    of the fire, type of material burned and quantity burned.
         Adds a provision specifying prior notification 
    requirements for the types of burns where notification is required (per 
    the SIP-approved rule).
        BAAQMD's submitted Regulation 6, Visible Emissions, includes the 
    following significant changes from the current SIP:
         Adds exemptions for open outdoor fires (subject to BAAQMD 
    Regulation 5) and temporary sandblasting operations (subject to BAAQMD 
    Regulation 12, Rule 4).
         Adds a provision for diesel pile-driving hammers to 
    require that a Ringlemann 1 (20% opacity) standard cannot be exceeded 
    for more than four minutes during the driving of a single pile unless 
    the operator uses kerosene, smoke suppressing fuel additives and 
    synthetic lubricating oil. If these cleaner products are used, a 
    Ringlemann 2 (40% opacity) limit applies which cannot be exceeded for 
    more than four minutes during the driving of a single pile. Also, 
    records must be maintained demonstrating use of the cleaner products. 
    In reference to SIP-approved Regulation 6, diesel pile-driving hammers 
    are included under a Ringlemann 2 standard which cannot be exceeded for 
    more than three minutes an hour.
        EPA has evaluated the submitted rules and has determined that they 
    are consistent with the CAA, EPA regulations, and EPA policy. 
    Therefore, BAAQMD Regulation 5, Open Burning, and Regulation 6, Visible 
    Emissions, are being approved under section 110(k)(3) of the CAA as 
    meeting the requirements of section 110(a).
        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 rule without prior proposal because the 
    Agency views this as a noncontroversial amendment and anticipates no 
    adverse comments. However, in the proposed rules section of this 
    Federal Register publication, EPA is publishing a separate document 
    that will serve as the proposal to approve the SIP revision should 
    relevant adverse comments be filed. This rule will be effective 
    November 3, 1998 without further notice unless the Agency receives 
    relevant adverse comments by October 5, 1998.
        If the EPA received such comments, then EPA will publish a timely 
    withdrawal of the direct final rule and inform the public that the rule 
    will not take effect. All public comments received will then be 
    addressed in a subsequent final rule based on proposed rule. The EPA 
    will not institute a second comment period on this rule. Any parties 
    interested in commenting on this rule should do so at this time. If no 
    such comments are received, the public is advised that this rule will 
    be effective on November 3, 1998 and no further action will be taken on 
    the proposed rule.
    
    IV. Administrative Requirements
    
    A. Executive Order 12866
    
        The Office of Management and Budget (OMB) has exempted this 
    regulatory action from E.O. 12866 review.
        The final rule is not subject to E.O. 13045, entitled ``Protection 
    of Children from Environmental Health Risks and Safety Risks,'' because 
    it is not an ``economically significant'' action under E.O. 12866.
    
    B. Regulatory Flexibility Act
    
        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 populations of less than 
    50,000.
        SIP approvals under section 110 and subchapter I, part D of the 
    Clean Air Act do not create any new requirements but simply approve 
    requirements that the State is already imposing. Therefore, because the 
    Federal SIP approval does not impose any new requirements, the 
    Administrator certifies 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 flexibility 
    analysis would constitute Federal inquiry into the economic 
    reasonableness of state action. The Clean Air Act forbids EPA to base 
    its actions concerning SIPs on such grounds. Union Electric Co. v. U.S. 
    EPA, 427 U.S. 246, 255-66 (1976); 42 U.S.C. 7410(a)(2).
    
    C. Unfunded Mandates
    
        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 estimated 
    costs to State, local, or tribal governments in the aggregate; or to 
    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 approval action promulgated 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 Federal action approves pre-
    existing requirements under State or local law, and imposes no new 
    Federal requirements. Accordingly, no additional costs to State, local, 
    or tribal governments, or to the private sector, result from this 
    action.
    
    D. Submission to Congress and the General Accounting Office
    
        The Congressional Review Act, 5 U.S.C. 801 et seq., as added by the 
    Small Business Regulatory Enforcement Fairness Act of 1996, generally 
    provides that before a rule may take effect, the agency promulgating 
    the rule must submit a rule report, which includes a copy of the rule, 
    to each House of the Congress and to the Comptroller General of the 
    United States. EPA will submit a report containing this rule and other 
    required information to the U.S. Senate, the U.S. House of 
    Representatives, and the Comptroller General of the United States prior 
    to publication of the rule in the Federal Register. This rule is not a 
    ``major'' rule as defined by 5 U.S.C. 804(2).
    
    E. Petitions for Judicial Review
    
        Under section 307(b)(1) of the Clean Air Act, petitions for 
    judicial review of this action must be filed in the United States Court 
    of Appeals for the appropriate circuit by November 3, 1998. Filing a 
    petition for reconsideration by the Administrator of this final rule 
    does not affect the finality of this rule for the purposes of judicial 
    review nor does it extend the time within which a petition for judicial 
    review may be filed, and shall not postpone the effectiveness of such 
    rule or action. This action may not be challenged later in proceedings 
    to
    
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    enforce its requirements. (See section 307(b)(2).)
    
    List of Subjects in 40 CFR Part 52
    
        Environmental protection, Air pollution control, Incorporation by 
    reference, Intergovernmental relations, Reporting and recordkeeping 
    requirements, Particulate matter.
    
        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 23, 1998.
    Clyde Morris,
    Acting Regional Administrator, Region IX.
    
        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 et seq.
    
    Subpart F--California
    
        2. Section 52.220 is amended by adding paragraphs (c)(184)(i)(C)(2) 
    and (254)(i)(F) to read as follows:
    
    
    Sec. 52.220  Identification of plan.
    
    * * * * *
        (c) * * *
        (184) * * *
        (i) * * *
        (C) * * *
        (2) Regulation 6, adopted on December 19, 1990.
    * * * * *
        (254) * * *
        (i) * * *
        (F) Bay Area Air Quality Management District.
        (1) Regulation 5, adopted on November 2, 1994.
    
    [FR Doc. 98-23817 Filed 9-3-98; 8:45 am]
    BILLING CODE 6560-50-P
    
    
    

Document Information

Effective Date:
11/3/1998
Published:
09/04/1998
Department:
Environmental Protection Agency
Entry Type:
Rule
Action:
Direct final rule.
Document Number:
98-23817
Dates:
This rule is effective on November 3, 1998 without further notice, unless EPA receives relevant adverse comments by October 5, 1998. If EPA receives such comments, then it will publish a timely withdrawal in the Federal Register informing the public that this rule did take effect.
Pages:
47179-47182 (4 pages)
Docket Numbers:
CA 20-7-0084a FRL-6138-8
PDF File:
98-23817.pdf
CFR: (1)
40 CFR 52.220