Proposed Rule2021-21738
Clean Air Plans; Base Year Emissions Inventories for the 2015 Ozone Standards; California
Primary source
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Published
October 5, 2021
Issuing agencies
Environmental Protection Agency
Abstract
The Environmental Protection Agency (EPA) is proposing to approve revisions to the California State Implementation Plan (SIP) concerning the base year emissions inventories for 18 areas designated as nonattainment areas (NAAs) for the 2015 ozone National Ambient Air Quality Standards (2015 ozone NAAQS) submitted on July 24, 2020. The areas include: Amador County, Butte County, Calaveras County, Imperial County, Kern County (Eastern Kern), Los Angeles--San Bernardino Counties (West Mojave Desert), Los Angeles--South Coast Air Basin, Mariposa County, Nevada County (Western part), Riverside County (Coachella Valley), Sacramento Metro, San Francisco Bay Area, San Joaquin Valley, San Luis Obispo (Eastern part), Sutter Buttes, Tuolumne County, Tuscan Buttes, and Ventura County. We are proposing to approve these revisions under the Clean Air Act (CAA or "the Act"), which establishes emissions inventory requirements for all ozone nonattainment areas.
Full Text
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<title>Federal Register, Volume 86 Issue 190 (Tuesday, October 5, 2021)</title>
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[Federal Register Volume 86, Number 190 (Tuesday, October 5, 2021)]
[Proposed Rules]
[Pages 54887-54894]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2021-21738]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[EPA-R09-OAR-2021-0408; FRL-8902-01-R9]
Clean Air Plans; Base Year Emissions Inventories for the 2015
Ozone Standards; California
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
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SUMMARY: The Environmental Protection Agency (EPA) is proposing to
approve revisions to the California State Implementation Plan (SIP)
concerning the base year emissions inventories for 18 areas designated
as nonattainment areas (NAAs) for the 2015 ozone National Ambient Air
Quality Standards (2015 ozone NAAQS) submitted on July 24, 2020. The
areas include: Amador County, Butte County, Calaveras County, Imperial
County, Kern County (Eastern Kern), Los Angeles--San Bernardino
Counties (West Mojave Desert), Los Angeles--South Coast Air Basin,
Mariposa County, Nevada County (Western part), Riverside County
(Coachella Valley), Sacramento Metro, San Francisco Bay Area, San
Joaquin Valley, San Luis Obispo (Eastern part), Sutter Buttes, Tuolumne
County, Tuscan Buttes, and Ventura County. We are proposing to approve
these revisions under the Clean Air Act (CAA or ``the Act''), which
establishes emissions inventory requirements for all ozone
nonattainment areas.
DATES: Written comments must arrive on or before November 4, 2021.
ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R09-
OAR-2021-0408 at <a href="https://www.regulations.gov">https://www.regulations.gov</a>. For comments submitted at
<a href="http://Regulations.gov">Regulations.gov</a>, follow the online instructions for submitting
comments. Once submitted, comments cannot be edited or removed from
<a href="http://Regulations.gov">Regulations.gov</a>. The EPA may publish any comment received to its public
docket. Do not submit electronically any information you consider to be
Confidential Business Information (CBI) or other information whose
disclosure is restricted by statute. Multimedia submissions (audio,
video, etc.) must be accompanied by a written comment. The written
comment is considered the official comment and should include
discussion of all points you wish to make. The EPA will generally not
consider comments or comment contents located outside of the primary
submission (i.e., on the web, cloud, or other file sharing system). For
additional submission methods, please contact the person identified in
the FOR FURTHER INFORMATION CONTACT section. For the full EPA public
comment policy, information about CBI or multimedia submissions, and
general guidance on making effective comments, please visit <a href="https://www.epa.gov/dockets/commenting-epa-dockets">https://www.epa.gov/dockets/commenting-epa-dockets</a>. If you need assistance in a
language other than English or if you are a person with disabilities
who needs a reasonable accommodation at no cost to you, please contact
the person identified in the FOR FURTHER INFORMATION CONTACT section.
[[Page 54888]]
FOR FURTHER INFORMATION CONTACT: Khoi Nguyen, Air Planning Office (AIR-
2), EPA Region IX, 75 Hawthorne Street, San Francisco, CA 94105, (415)
947-4120, or by email at <a href="/cdn-cgi/l/email-protection#b3ddd4c6cad6dd9dd8dbdcdaf3d6c3d29dd4dcc5"><span class="__cf_email__" data-cfemail="19777e6c607c773772717670597c6978377e766f">[email protected]</span></a>.
SUPPLEMENTARY INFORMATION: Throughout this document, ``we,'' ``us,''
and ``our'' refer to the EPA.
Table of Contents
I. Background
II. Summary and Analysis of the State's Submittal
A. Statutory and Regulatory Requirements
1. Procedural Requirements for Adoption and Submittal of SIP
Revisions
2. Requirements for Base Year Inventories
B. Summary of the State's Submittal
1. Stationary Point Source Emissions
2. Area-wide Source Emissions
3. Off-Road Mobile Source Emissions
4. On-Road Mobile Source Emissions
C. The EPA's Evaluation of the State's Submittal
1. Evaluation of Procedural Requirements
2. Evaluation of Base Year Inventory Requirements
III. Proposed Action
IV. Statutory and Executive Order Reviews
I. Background
On October 26, 2015, the EPA promulgated a revised 8-hour ozone
NAAQS of 0.070 parts per million (ppm).\1\ In accordance with section
107(d) of the CAA, the EPA must designate an area ``nonattainment'' if
it is violating the NAAQS or if it is contributing to a violation of
the NAAQS in a nearby area.
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\1\ 80 FR 65292 (October 26, 2015).
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The EPA designated 21 areas in California as nonattainment for the
2015 ozone NAAQS on June 4, 2018, effective August 3, 2018.\2\ Amador
County, Calaveras County, Butte County, Imperial County, Mariposa
County, San Francisco Bay Area, San Luis Obispo (Eastern part), Sutter
Buttes, Tuolumne County, and Tuscan Buttes NAAs were classified as
Marginal nonattainment. Kern County (Eastern Kern), Nevada County
(Western part), Sacramento Metro, and San Diego County NAAs were
classified as Moderate nonattainment. The EPA classified the Ventura
County NAA as Serious nonattainment. The EPA classified the Los
Angeles-San Bernardino Counties (West Mojave Desert) and Riverside
County (Coachella Valley) NAAs as Severe-15 nonattainment. The EPA
classified the Los Angeles-South Coast Air Basin and San Joaquin Valley
NAAs as Extreme nonattainment. The EPA designated the lands of the
Pechanga Band of Luise[ntilde]o Mission Indians of the Pechanga
Reservation and the Morongo Band of Mission Indians as separate NAAs
and classified them as Marginal and Serious nonattainment,
respectively. The State of California does not have regulatory
authority on any Indian reservation land or in any other area where the
EPA or an Indian tribe has demonstrated that a tribe has jurisdiction.
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\2\ 83 FR 25776 (June 4, 2018).
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The EPA finalized the 2015 ozone NAAQS SIP Requirements Rule (SRR)
on December 6, 2018.\3\ The SRR established implementation requirements
for the 2015 ozone NAAQS, including requirements for ``base year''
emissions inventories under CAA section 182(a)(1). The 2015 Ozone SRR
is codified at 40 CFR part 51, subpart CC, and the emissions inventory
requirements are codified at 40 CFR 51.1315.
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\3\ ``Implementation of the 2015 National Ambient Air Quality
Standards for Ozone: Nonattainment Area State Implementation Plan
Requirements,'' Final Rule, 83 FR 62998 (December 6, 2018).
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Within two years of designations, Section 182(a)(1) of the CAA and
40 CFR 51.1315 require states and local governments to prepare base
year emissions inventories for all areas exceeding the ozone standards.
On July 27, 2020, the California Air Resources Board (CARB) submitted
the ``70 ppb Ozone SIP Submittal'' (``2020 CARB SIP Submittal'') to the
EPA.\4\ The 2020 CARB SIP Submittal contains a staff report with a
release date of May 22, 2020, and attachments of emissions inventories
that address base year inventory requirements for 18 of the 21 NAAs in
California.\5\ In this action, we are evaluating and proposing action
on the 2020 CARB SIP Submittal.\6\
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\4\ Letter dated July 24, 2020, from Richard W. Corey, Executive
Officer, CARB, to John Busterud, Regional Administrator, EPA Region
IX (submitted electronically July 27, 2020).
\5\ CARB's submittal does not include the San Diego NAA, which
was submitted separately via the State Planning Electronic
Collaboration System (SPeCS) for SIPs on January 12, 2021. The EPA
will take action on the emissions inventory for the San Diego NAA in
a separate rulemaking. Because the State of California does not have
regulatory authority over the Pechanga and Morongo NAAs, CARB's
submittal does not include emissions inventories for these areas.
\6\ The 2020 CARB SIP Submittal, Section III addresses Vehicle
Miles Travel (VMT) offsets for the South Coast Air Basin, San
Joaquin Valley, and Coachella Valley. The EPA will take action on
VMT offsets in a separate rulemaking.
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II. Summary and Analysis of the State's Submittal
A. Statutory and Regulatory Requirements
1. Procedural Requirements for Adoption and Submittal of SIP Revisions
CAA sections 110(a)(1) and 110(l) and 40 CFR 51.102 require states
to provide reasonable notice and an opportunity for a public hearing
prior to adoption of SIP revisions. Section 110(k)(1)(B) requires the
EPA to determine whether a SIP submittal is complete within 60 days of
receipt. Any plan that the EPA does not affirmatively determine to be
complete or incomplete will become complete six months after the day of
submittal by operation of law. A finding of completeness does not
approve the submittal as part of the SIP, nor does it indicate that the
submittal is approvable. It does start a 12-month clock for the EPA to
act on the SIP submittal (see CAA section 110(k)(2)).
2. Requirements for Base Year Inventories
CAA section 182(a)(1) and 40 CFR 51.1315 require states to develop
and submit, as a SIP revision, emissions inventories for all areas
designated as nonattainment for any NAAQS. An emissions inventory for
ozone is an estimation of actual emissions of air pollutants that
contribute to the formation of ozone in an area. Ozone is a gas that is
formed by the reaction of volatile organic compounds (VOC) and oxides
of nitrogen (NO<INF>X</INF>) in the atmosphere in the presence of
sunlight (VOC and NO<INF>X</INF> are referred to as ozone precursors).
Therefore, an emissions inventory for ozone focuses on the emissions of
VOC and NO<INF>X</INF>. VOC is emitted by many types of sources,
including power plants, industrial sources, on-road and off-road mobile
sources, smaller stationary sources collectively referred to as area
sources, and biogenic sources. NO<INF>X</INF> is primarily emitted by
combustion sources, both stationary and mobile.
Emissions inventories provide emissions data for a variety of air
quality planning tasks, including establishing baseline emissions
levels (i.e., the level of anthropogenic emissions associated with
violations of the ozone standard), calculating emissions reduction
targets needed to attain the NAAQS and to achieve reasonable further
progress (RFP) toward attainment of the ozone standard, determining
emissions inputs for ozone air quality modeling analyses, and tracking
emissions over time to
[[Page 54889]]
determine progress toward achieving air quality and emissions reduction
goals. For the 2015 ozone NAAQS, states should submit ozone season day
\7\ emissions estimates for an inventory calendar year to be consistent
with the baseline year for the RFP plan as required by 40 CFR
51.1310(b). For the RFP baseline year for the 2015 ozone NAAQS states
may use a calendar year for the most recently available complete
triennial (3-year cycle) emissions inventory (40 CFR 51, subpart A)
preceding the year of the area's effective date of designation as a
nonattainment area.\8\ States are required to submit estimates of VOC
and NO<INF>X</INF> emissions for four general classes of anthropogenic
sources: Stationary point sources; area sources; on-road mobile
sources; and off-road mobile sources.
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\7\ See 40 CFR 51.1300(q). Also see ``Emissions Inventory
Guidance for Implementation of Ozone and Particulate Matter National
Ambient Air Quality Standards (NAAQS) and Regional Haze
Regulations,'' EPA-454/B-17-002, EPA, May 2017. The selected ozone
season should be representative of the conditions leading to
nonattainment.
\8\ 83 FR 63034-63035 (December 6, 2018). The RFP requirements
specified in CAA section 182(b)(1) apply to all areas designated
nonattainment for ozone classified Moderate or higher.
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B. Summary of the State's Submittal
The 2020 CARB SIP Submittal documents the public review process
followed prior to its submittal to the EPA as a revision to the SIP.
The submittal includes a copy of a CARB notice of public meeting on
June 25, 2020 to consider the approval of the submittal,\9\ a
transcript from the June 25, 2020 meeting,\10\ a signed resolution
stating that CARB made the emissions inventories available for public
review at least 30 days prior to the board hearing and that the
emissions inventories were adopted after notice and public hearing,\11\
and a compilation of comments received by CARB prior to and during the
June 25, 2020 public meeting.\12\
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\9\ Notice of Public Meeting to Consider 70 Parts Per Billion
Ozone State Implementation Plan Submittal, California Air Resources
Board, May 22, 2020.
\10\ Videoconference Meeting, State of California, Air Resources
Board, CAL/EPA Headquarters, Byron Sher Auditorium, Second Floor,
1001 I Street, Sacramento, California 95814, Thursday, June 25,
2020, 9:03 a.m., James F. Peters, CSR, Certified Shorthand Reporter,
License Number 10063.
\11\ CARB, ``70 Parts Per Billion Ozone State Implementation
Plan Submittal,'' Resolution 20-17, June 25, 2020, Agenda Item No.:
20-6-1, signed by Ryan Sakazaki, Board Clerk.
\12\ Compilation of comments received for 70 Parts Per Billion
Ozone State Implementation Plan Submittal. CARB indicated in its
July 24, 2020 transmittal letter to the EPA that CARB has considered
all comments and has determined all are non-substantive and do not
pertain to the action.
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CARB selected 2017 as the base year because it was the most recent
calendar year for which a complete triennial inventory was required to
be submitted to the EPA, and because the year is consistent with the
baseline year for the reasonable further progress (RFP) plan.\13\ The
submitted base year emissions inventories are expressed as 2017 average
ozone season day emissions in tons per day (tpd) \14\ and categorized
as stationary point sources, area-wide sources, on-road mobile sources,
and off-road mobile sources. The 2020 CARB SIP Submittal describes
methods used to estimate emissions for each category and
subcategory.\15\ The 2020 CARB SIP Submittal also describes how
emissions were calculated for ``split regions'' not defined by CARB's
county, air basin, and district boundaries,\16\ and CARB's quality
assurance and quality control process.\17\
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\13\ 2020 CARB SIP Submittal, page 9.
\14\ 2020 CARB SIP Submittal, pages 5 and 9. The submittal
indicates that statewide attainment challenges for the 8-hour ozone
standard occur in the summer months, defined as May-October, and
that seasonal inventories account for temporal activity variations
throughout the year, as determined by category-specific temporal
profiles.
\15\ 2020 CARB SIP Submittal, pages 10-33.
\16\ 2020 CARB SIP Submittal, page 9.
\17\ 2020 CARB SIP Submittal, pages 9-10.
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Table 1 summarizes the 2017 emissions inventories in tons of
emissions per ozone season day for the Amador County, Butte County,
Calaveras County, Imperial County, Kern County (Eastern Kern), Los
Angeles--San Bernardino Counties (West Mojave Desert), Los Angeles--
South Coast Air Basin, Mariposa County, Nevada County (Western part),
Riverside County (Coachella Valley), Sacramento Metro, San Francisco
Bay Area, San Joaquin Valley, San Luis Obispo (Eastern part), Tuolumne
County, and Ventura County NAAs for NO<INF>X</INF> and VOC \18\
emissions.\19\ The 2020 CARB SIP Submittal indicated that the Sutter
Buttes and Tuscan Buttes NAAs are both small, high elevation areas and
contained no anthropogenic sources; therefore there are no associated
emissions inventories with these two NAAs.\20\
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\18\ The State of California refers to reactive organic gases
(ROG) rather than VOC in some of its ozone-related SIP submissions.
As a practical matter, ROG and VOC refer to the same set of chemical
constituents, and for simplicity, we refer to this set of gases as
VOC in this proposed rule.
\19\ 2020 CARB SIP Submittal, pages 7-35.
\20\ 2020 CARB SIP Submittal, page 6.
Table 1--2017 Average Ozone Season Day Emissions Inventories
[tpd]
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Category NOX % of total VOC % of total
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Amador County
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Stationary Sources.............................. 2.21 59 0.88 23
Area-wide Sources............................... 0.05 1 1.55 41
On-road Mobile.................................. 1.05 28 0.64 17
Off-Road Mobile................................. 0.44 12 0.72 19
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Total....................................... 3.76 100 3.79 100
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Butte County
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Stationary Sources.............................. 1.11 9 2.07 17
Area-wide Sources............................... 0.68 5 5.09 42
On-road Mobile.................................. 4.94 39 2.52 21
Off-Road Mobile................................. 5.92 47 2.52 21
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Total....................................... 12.65 100 12.19 100
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[[Page 54890]]
Calaveras County
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Stationary Sources.............................. 0.04 2 0.19 4
Area-wide Sources............................... 0.1 5 2.05 43
On-road Mobile.................................. 1.4 63 0.84 18
Off-Road Mobile................................. 0.67 30 1.66 35
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Total....................................... 2.21 100 4.74 100
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Imperial County
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Stationary Sources.............................. 1.38 9 1.33 10
Area-wide Sources............................... 0.21 1 6.88 49
On-road Mobile.................................. 6.05 41 2.6 19
Off-Road Mobile................................. 7.14 48 3.18 23
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Total....................................... 14.78 100 13.98 100
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Kern County (Eastern Kern)
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Stationary Sources.............................. 18.13 67 1.4 20
Area-wide Sources............................... 0.12 0 1.17 16
On-road Mobile.................................. 3.94 15 1.27 18
Off-Road Mobile................................. 4.82 18 3.33 46
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Total....................................... 27.01 100 7.18 100
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Los Angeles--San Bernardino Counties (West Mojave Desert)
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Stationary Sources.............................. 23.95 32 13.88 36
Area-wide Sources............................... 0.93 1 10.85 28
On-road Mobile.................................. 23.06 31 9.03 23
Off-Road Mobile................................. 27.02 36 4.89 13
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Total....................................... 74.95 100 38.64 100
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Los Angeles--South Coast Air Basin
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Stationary Sources.............................. 43.28 12 94.27 23
Area-wide Sources............................... 10.35 3 125.28 30
On-road Mobile.................................. 180.29 51 91.96 22
Off-Road Mobile................................. 118.41 34 99.25 24
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Total....................................... 352.32 100 410.75 100
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Mariposa County
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Stationary Sources.............................. 0.02 2 0.07 3
Area-wide Sources............................... 0.01 1 1.33 51
On-road Mobile.................................. 0.48 59 0.34 13
Off-Road Mobile................................. 0.3 37 0.89 34
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Total....................................... 0.8 100 2.63 100
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Nevada County (Western part)
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Stationary Sources.............................. 0.1 3 0.76 16
Area-wide Sources............................... 0.15 4 1.65 35
On-road Mobile.................................. 2.8 72 1.21 26
Off-Road Mobile................................. 0.82 21 1.07 23
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Total....................................... 3.86 100 4.68 100
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Riverside County (Coachella Valley)
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Stationary Sources.............................. 1.31 7 3.58 24
Area-wide Sources............................... 0.29 1 3.82 26
On-road Mobile.................................. 12.19 62 4.22 29
Off-Road Mobile................................. 5.91 30 3.09 21
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Total....................................... 19.7 100 14.71 100
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[[Page 54891]]
Sacramento Metro
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Stationary Sources.............................. 6.21 9 23.31 25
Area-wide Sources............................... 2.34 3 31.69 34
On-road Mobile.................................. 36.37 53 19.68 21
Off-Road Mobile................................. 24.25 35 19.79 21
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Total....................................... 69.16 100 94.46 100
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San Francisco Bay Area
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Stationary Sources.............................. 32.96 17 68.49 29
Area-wide Sources............................... 6.79 4 76.8 33
On-road Mobile.................................. 78.28 41 41.21 18
Off-Road Mobile................................. 72.87 38 46.6 20
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Total....................................... 190.9 100 233.1 100
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San Joaquin Valley
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Stationary Sources.............................. 28.04 13 83.75 27
Area-wide Sources............................... 4.21 2 154.67 50
On-road Mobile.................................. 100.38 46 34.06 11
Off-Road Mobile................................. 87.57 40 35.37 11
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Total....................................... 220.2 100 307.85 100
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San Luis Obispo (Eastern part)
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Stationary Sources.............................. 0.45 58 0.09 20
Area-wide Sources............................... 0.01 1 0.22 49
On-road Mobile.................................. 0.2 26 0.1 22
Off-Road Mobile................................. 0.12 15 0.04 9
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Total....................................... 0.77 100 0.44 100
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Tuolumne County
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Stationary Sources.............................. 1.05 28 0.5 7
Area-wide Sources............................... 0.07 2 2.15 30
On-road Mobile.................................. 1.59 42 1.15 16
Off-Road Mobile................................. 1.08 28 3.38 47
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Total....................................... 3.78 100 7.18 100
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Ventura County
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Stationary Sources.............................. 2.02 11 8.08 27
Area-wide Sources............................... 0.63 3 10.45 35
On-road Mobile.................................. 8.41 44 5.08 17
Off-Road Mobile................................. 8.09 42 6.63 22
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Total....................................... 19.14 100 30.23 100
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Source: Attachment A of 2020 CARB SIP Submittal. The sum of the emissions values may not equal the totals shown
due to rounding. The table excludes biogenic emissions. Additionally, there are no anthropogenic emissions
from the Sutter Buttes and Tuscan Buttes NAAs.
1. Stationary Point Source Emissions
CARB estimates stationary point source emissions based on annual
reports submitted by the local air districts. The inventory reflects
actual emissions from industrial point sources reported to local air
districts by facility operators through calendar year 2017.\21\ The
local air districts are responsible for working with facility operators
to compile estimates, using source testing, direct measurement, or
engineering calculations. CARB estimates emissions from smaller point
sources, such as gasoline dispensing facilities and residential water
heaters, as a group and reports them in a single source category. CARB
groups stationary point source emissions into the following categories:
Fuel combustion, waste disposal, cleaning and surface coatings,
petroleum production and marketing, and industrial processes.\22\
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\21\ 2020 CARB SIP Submittal, page 14.
\22\ 2020 CARB SIP Submittal, Attachment A. Fuel combustion
subcategories: Electric utilities, cogeneration, oil and gas
production (combustion), manufacturing and industrial, food and
agricultural processing, service and commercial, other (fuel
combustion). Waste disposal subcategories: Sewage treatment,
incinerators, other (waste disposal). Cleaning and surface coatings
subcategories: Laundering, degreasing, coatings and related process
solvents, printing, adhesives, and sealants. Petroleum productions
and marketing subcategories: Oil and gas production, petroleum
marketing, other (petroleum production and marketing). Industrial
processes subcategories: Food agriculture, mineral processes, metal
processes, wood and paper, other (industrial processes).
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[[Page 54892]]
CARB describes the methodologies it uses for smaller point sources
in Section II.B of the ``Emission Inventory Components'' summary of the
2020 CARB SIP Submittal.\23\ The categories for these smaller point
sources include: Stationary non-agricultural diesel engines,
agricultural diesel irrigation pumps, wine fermentation and aging,
laundering, degreasing, coatings and thinners, adhesives and sealants,
gasoline dispensing facilities, gasoline cargo tank, marine petroleum
loading, marine petroleum unloading, and oil and gas production. In
addition to describing each category, CARB provides website links to
additional information on each methodology. For example, while CARB
reports most of the food and agricultural processing emissions sources
as individual point sources, CARB estimates the exhaust emissions from
agricultural irrigation pumps from a model developed by CARB staff.
This category includes emissions from the operation of diesel-fueled
stationary and mobile agricultural irrigation pumps.\24\
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\23\ 2020 CARB SIP Submittal, pages 14-19.
\24\ Section II.B.b of 2020 CARB SIP Submittal, page 15.
Additional information on agricultural diesel irrigation pumps is
available at <a href="https://ww3.arb.ca.gov/ei/areasrc/fullpdf/full1-1.pdf">https://ww3.arb.ca.gov/ei/areasrc/fullpdf/full1-1.pdf</a>.
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2. Area-Wide Source Emissions
CARB's area-wide source inventories include categories where
emissions take place over a wide geographic area, such as consumer
products, cooking, and agricultural burning. CARB groups area-wide
source emissions as either solvent evaporation or miscellaneous
processes.\25\
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\25\ 2020 CARB SIP Submittal, Attachment A. Solvent evaporation
subcategories: Consumer products, architectural coatings and related
process solvents, pesticides/fertilizers, asphalt paving/roofing.
Miscellaneous processes subcategories: Residential fuel combustion,
farming operations, construction and demolition, paved road dust,
unpaved road dust, fugitive windblown dust, fires, managed burning
and disposal, cooking, and other (miscellaneous processes).
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CARB describes the methodologies for each area-wide source
emissions category in Section II.C of the ``Emission Inventory
Components'' summary of the 2020 CARB SIP Submittal.\26\ Area-wide
source emissions estimates are developed by CARB staff as well as some
air districts. The methodologies are reviewed by CARB and air district
staff before inclusion in the emissions inventory. CARB uses various
models and methodologies for estimating emissions from area-wide source
categories. CARB also provides information describing the methodologies
used for the following area-wide sources: Consumer products and aerosol
coatings, architectural coatings, pesticides, residential wood
combustion, residential natural gas combustion, residential distillate
oil and liquified petroleum gas, farming operations, fires, managed
burning and disposal, and commercial cooking.\27\ In addition to
describing each category, CARB provides website links to additional
information on each methodology. A few examples are provided below.
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\26\ 2020 CARB SIP Submittal, pages 19-22.
\27\ 2020 CARB SIP Submittal, pages 19-22.
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For the consumer products emissions estimates, CARB utilized sales
and formulation data from CARB's mandatory survey of all consumer
products sold in California for calendar years 2013 through 2015.\28\
Based on the survey data, CARB staff determined the total product sales
and total VOC emissions for the various product categories. Growth for
personal care products is based on real disposable personal income
projections per Regional Economic Models, Inc. (REMI) version 2.3. No
growth is assumed for aerosol coatings. Growth for all other personal
care products is based on California Department of Finance.
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\28\ 2020 CARB SIP Submittal, page 19. Additional information on
CARB's consumer products surveys is available at: <a href="https://ww2.arb.ca.gov/our-work/programs/consumer-products-program/consumer-commercial-product-surveys">https://ww2.arb.ca.gov/our-work/programs/consumer-products-program/consumer-commercial-product-surveys</a>.
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The California Department of Pesticide Regulation (DPR) develops
month-specific emissions estimates for agricultural and structural
pesticides for CARB.\29\ The DPR applies Emission Potential values from
the DPR database to the amount of grower-reported pesticide application
in DPR's Pesticide Use Report database.\30\
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\29\ 2020 CARB SIP Submittal, page 20. Additional information
about CARB's pesticides program is available at: <a href="https://ww2.arb.ca.gov/solvent-evaporation-methodologies">https://ww2.arb.ca.gov/solvent-evaporation-methodologies</a>.
\30\ The EP value is the fraction of the product that is assumed
to potentially contribute to atmospheric VOC. California's pesticide
use reporting program requires that all agricultural pesticide use
must be reported monthly by growers to county agricultural
commissions, who in turn, report the data to DPR. See <a href="https://ww2.arb.ca.gov/solvent-evaporation-methodologies">https://ww2.arb.ca.gov/solvent-evaporation-methodologies</a>.
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CARB uses survey data and emissions factors to estimate emissions
from residential wood combustion, a subcategory of residential fuel
combustion.\31\ In 2011, CARB updated its methodology for residential
wood combustion to include more recent survey data on residential wood
burning devices and consumption rates, updates to the EPA National
Emissions Inventory emissions factors and improved calculation
approaches.\32\ The update reflects wood combustion surveys conducted
by several districts including the Bay Area Air Quality Management
District (AQMD) in 2007, South Coast AQMD in 2003 and 2006, Placer
County Air Pollution Control District (APCD) in 2007, San Joaquin
Valley APCD in 2014, and Sacramento Metropolitan AQMD in 2007. CARB
also assumes no growth for this category based on the relatively
stagnant residential wood fuel use over the past decade according to
the American Community Survey and United States Energy Information
Administration.
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\31\ 2020 CARB SIP Submittal, page 20. Additional information on
this methodology is available at: <a href="https://ww2.arb.ca.gov/miscellaneous-process-methodologies">https://ww2.arb.ca.gov/miscellaneous-process-methodologies</a>.
\32\ CARB, Section 7.1 Residential Wood Combustion (Revised
October 2015), available at: <a href="http://www.arb.ca.gov/ei/areasrc/fullpdf/full7-1_2011.pdf">http://www.arb.ca.gov/ei/areasrc/fullpdf/full7-1_2011.pdf</a>.
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3. Off-Road Mobile Source Emissions
CARB has developed category-specific models for numerous off-road
(also known as ``nonroad'') sources, including locomotives, ships,
industrial and construction equipment, and recreational vehicles.\33\
CARB estimated emissions from off-road sources using a suite of
category-specific models or, where a new model was not available, the
OFFROAD2007 model. The submittal indicated that many of the newer
models were developed to support recent regulations, including in-use
off-road equipment, ocean-going vessels, and others. CARB provided
information describing the updates made to following off-road sources:
Ocean going vessels,\34\ commercial harbor craft, pleasure crafts and
recreational vehicles, locomotives, fuel storage and handling
equipment, fuel storage and handling, diesel agricultural equipment,
in-use off-road equipment (i.e., construction, industrial, mining, oil
drilling, and ground support equipment), cargo handling equipment, and
transportation refrigeration units.\35\ In addition to describing each
category, CARB provides website links to additional information on each
methodology. These descriptions include the type of source represented,
[[Page 54893]]
the types and source of data used, and the models used.
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\33\ 2020 CARB SIP Submittal, pages 11-14.
\34\ CARB clarified via email that the link for ocean going
vessels was updated to: <a href="https://ww3.arb.ca.gov/msei/offroad/pubs/2019_ogv_inventory_writeup_ver_oct_18_2019.pdf">https://ww3.arb.ca.gov/msei/offroad/pubs/2019_ogv_inventory_writeup_ver_oct_18_2019.pdf</a>. See email dated
February 9, 2021, from Stephanie Huber, CARB to Khoi Nguyen, EPA
Region IX.
\35\ Aircrafts are also considered off-road mobile sources. In
CARB's February 9, 2021 email, CARB clarified that aircraft
emissions are estimated by the districts.
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For example, CARB groups commercial harbor craft into nine vessel
types, including ferry and excursion vessels, tow boats, tugboats,
pilot vessels, work boats, crew and supply vessels, commercial fishing
vessels, charter fishing vessels, and other.\36\ Vessel and engine data
were reported to CARB by vessel operators in compliance with CARB's
2007 Commercial Harbor Craft Regulation. Staff updated the crew and
supply vessel emissions inventory using 2009 reporting data and
developed barge and dredge vessel emissions inventory using information
from a 2009 CARB survey. Vessel population data were collected from
various sources, including the U.S. Coast Guard, the California
Department of Fish and Wildlife registration data, the CARB Harbor
Craft Survey, and information from recent emissions inventory estimates
generated for Los Angeles. Vessel and engine profiles, including vessel
and engine type, age, size, annual hours of operation, and annual fuel
use were developed based on the CARB survey.
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\36\ 2020 CARB SIP Submittal, page 11. Additional information on
CARB's CHC methodology is available at: <a href="https://www.arb.ca.gov/regact/2010/chc10/appc.pdf">https://www.arb.ca.gov/regact/2010/chc10/appc.pdf</a>.
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4. On-Road Mobile Source Emissions
CARB estimated on-road mobile emissions from cars, light and heavy-
duty trucks, motorcycles, buses, and motor homes using its Emission
Factors (EMFAC) model version 2017,\37\ which was the latest EPA-
approved version available at the time the emissions inventories were
prepared.\38\ The on-road emissions were calculated by applying
EMFAC2017 emissions factors to the transportation activity data
provided by the local metropolitan planning organizations. CARB states
that EMFAC2017 includes data on California's car and truck fleets and
travel activity. Light-duty motor vehicle fleet age, vehicle type, and
vehicle population were based on data from the Department of Motor
Vehicles (DMV), updated in 2016. The model also reflects the emissions
benefits of CARB's rulemakings such as the Pavley Standards and
Advanced Clean Cars Program and includes the emissions benefits from
CARB's Truck and Bus Rule and previously adopted rules for other on-
road diesel fleets. CARB also indicates that EMFAC2017 utilizes a
socio-econometric regression modeling approach to forecast new vehicle
sales and to estimate future fleet mix. Light-duty passenger vehicle
population includes 2016 DMV registration data along with updates to
mileage accrual using data from the Bureau of Automotive Repair Smog
Check Program. Updates to heavy-duty trucks include model year specific
emissions factors based on new test data, and population estimates
using DMV data for in-state trucks and International Registration Plan
data for out-of-state trucks.
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\37\ EMFAC is short for EMission FACtor. In August 2019, the EPA
approved EMFAC2017 for SIP development and transportation purposes
in California. 84 FR 41717 (August 15, 2019). CARB provides
additional information and documentation on the EMFAC2017 model,
available at: <a href="https://ww2.arb.ca.gov/our-work/programs/mobile-source-emissions-inventory/msei-road-documentation">https://ww2.arb.ca.gov/our-work/programs/mobile-source-emissions-inventory/msei-road-documentation</a>.
\38\ 2020 CARB SIP Submittal, page 10.
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C. The EPA's Evaluation of the State's Submittal
1. Evaluation of Procedural Requirements
Based on the documentation included in CARB's submittal, the EPA
finds that the submittal satisfies the procedural requirements of
sections 110(a)(1) and 110(l) of the Act requiring states to provide
reasonable notice and an opportunity for public hearing prior to
adoption of SIP revisions. CARB's submittal became complete by
operation of law on January 24, 2021 pursuant to section 110(k)(1)(B).
2. Evaluation of Base Year Inventory Requirements
The EPA has reviewed the 2020 CARB SIP Submittal for consistency
with sections 172(c)(3) and 182(a)(1) of the CAA, and the EPA's
emissions inventory requirements. In particular, the EPA has reviewed
the techniques used by CARB to derive and quality assure the emissions
estimates.
CARB documented the procedures used to estimate the emissions for
each of the major source types. The documentation of the emissions
estimation procedures is adequate for the EPA to determine that CARB
followed acceptable procedures to estimate emissions.
CARB has established a quality assurance and quality control (QA/
QC) process to ensure the integrity and accuracy of the emissions
inventories used in the development of air quality plans. These QA/QC
procedures were summarized in the documentation describing how the
emissions totals were developed.\39\ The EPA has determined that the
QA/QC procedures are complete, adequate, and acceptable.
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\39\ 2020 CARB SIP Submittal, page 9.
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The EPA has also reviewed the 2017 average ozone season day base
year emissions inventories in the 2020 CARB SIP Submittal. Our review
included the emissions estimates for stationary sources, area-wide
sources, and mobile sources. We find that CARB's selection of 2017 as
the base year was appropriate for these areas because 2017 was the most
recent calendar year for which a consistent and comprehensive statewide
inventory was available. We also find that the emissions inventories
appropriately address ozone season day emissions consistent with the
definition of ozone season day emissions under 40 CFR 51.1300(q). The
submittal provides sufficient information and explanation to allow the
EPA to make a determination on the acceptability of the emissions
inventories.
The EPA proposes to find that CARB has developed approvable
inventories of NO<INF>X</INF> and VOC emissions for the following ozone
nonattainment areas as required under the CAA and SRR (40 CFR 51.1315,
see also CAA section 172(c)(3)): Amador County, Butte County, Calaveras
County, Imperial County, Kern County (Eastern Kern), Los Angeles--San
Bernardino Counties (West Mojave Desert), Los Angeles--South Coast Air
Basin, Mariposa County, Nevada County (Western part), Riverside County
(Coachella Valley), Sacramento Metro, San Francisco Bay Area, San
Joaquin Valley, San Luis Obispo (Eastern part), Sutter Buttes, Tuolumne
County, Tuscan Buttes, and Ventura County.
III. Proposed Action
We are proposing to approve the 2020 CARB SIP Submittal to address
the ozone-related emissions inventory requirements for 18 ozone
nonattainment areas for the 2015 ozone NAAQS. These areas are: Amador
County, Butte County, Calaveras County, Imperial County, Kern County
(Eastern Kern), Los Angeles--San Bernardino Counties (West Mojave
Desert), Los Angeles--South Coast Air Basin, Mariposa County, Nevada
County (Western part), Riverside County (Coachella Valley), Sacramento
Metro, San Francisco Bay Area, San Joaquin Valley, San Luis Obispo
(Eastern part), Sutter Buttes, Tuolumne County, Tuscan Buttes, and
Ventura County. The emissions inventories we are approving into the SIP
are specified in Table 1. We are proposing to approve the emissions
inventories because they contain comprehensive, accurate, and current
inventories of actual emissions for all relevant sources in accordance
with CAA sections 172(c)(3) and 182(a), and because CARB adopted the
emissions inventories after providing for
[[Page 54894]]
reasonable public notice and opportunity for a public hearing.
IV. Statutory and Executive Order Reviews
Under the Clean Air Act, the Administrator is required to approve a
SIP submission that complies with the provisions of the Act and
applicable federal regulations. 42 U.S.C. 7410(k); 40 CFR 52.02(a).
Thus, in reviewing SIP submissions, the EPA's role is to approve state
choices, provided that they meet the criteria of the Clean Air Act.
Accordingly, this proposed action merely proposes to approve state law
as meeting federal requirements and does not impose additional
requirements beyond those imposed by state law. For that reason, this
proposed action:
<bullet> Is not a ``significant regulatory action'' subject to
review by the Office of Management and Budget under Executive Orders
12866 (58 FR 51735, October 4, 1993) and 13563 (76 FR 3821, January 21,
2011);
<bullet> Does not impose an information collection burden under the
provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);
<bullet> Is certified as not having a significant economic impact
on a substantial number of small entities under the Regulatory
Flexibility Act (5 U.S.C. 601 et seq.);
<bullet> Does not contain any unfunded mandate or significantly or
uniquely affect small governments, as described in the Unfunded
Mandates Reform Act of 1995 (Pub. L. 104-4);
<bullet> Does not have federalism implications as specified in
Executive Order 13132 (64 FR 43255, August 10, 1999);
<bullet> Is not an economically significant regulatory action based
on health or safety risks subject to Executive Order 13045 (62 FR
19885, April 23, 1997);
<bullet> Is not a significant regulatory action subject to
Executive Order 13211 (66 FR 28355, May 22, 2001);
<bullet> Is not subject to requirements of Section 12(d) of the
National Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272
note) because application of those requirements would be inconsistent
with the Clean Air Act; and
<bullet> Does not provide the EPA with the discretionary authority
to address disproportionate human health or environmental effects with
practical, appropriate, and legally permissible methods under Executive
Order 12898 (59 FR 7629, February 16, 1994).
In addition, the SIP is not approved to apply on any Indian
reservation land or in any other area where the EPA or an Indian tribe
has demonstrated that a tribe has jurisdiction. In those areas of
Indian country, the rule does not have tribal implications and will not
impose substantial direct costs on tribal governments or preempt tribal
law as specified by Executive Order 13175 (65 FR 67249, November 9,
2000).
List of Subjects in 40 CFR Part 52
Environmental protection, Air pollution control, Incorporation by
reference, Intergovernmental relations, Ozone, Reporting and
recordkeeping requirements, Volatile organic compounds.
Authority: 42 U.S.C. 7401 et seq.
Dated: September 29, 2021.
Deborah Jordan,
Acting Regional Administrator, Region IX.
[FR Doc. 2021-21738 Filed 10-4-21; 8:45 am]
BILLING CODE 6560-50-P
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This is legal information, not legal advice. Laws vary by jurisdiction and change frequently. Always verify current law with official sources and consult a licensed attorney in your jurisdiction for advice on your specific situation.