29712 Federal Register / Vol. 79, No. 100 / Friday, May 23, 2014 / Proposed Rules 

Act of 1995 (15 U.S.C. 272 note) because 

application of those requirements would 

be inconsistent with the CAA; and 

• Does not provide 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, this proposed rule does 

not have tribal implications as specified 

by Executive Order 13175 (65 FR 67249, 

November 9, 2000), because the SIP is 

not approved to apply in Indian country 

located in the State, and EPA notes that 

it will not impose substantial direct 

costs on tribal governments or preempt 

tribal law. 

List of Subjects in 40 CFR Part 52 

Environmental protection, Air 

pollution control, Incorporation by 

reference, Intergovernmental 

regulations, Nitrogen dioxide, Ozone, 

Reporting and recordkeeping 

requirements, Volatile organic 

compounds. 

Authority: 42 U.S.C. 7401 et seq. 

Dated: May 5, 2014. 

Jared Blumenfeld, 

Regional Administrator, EPA Region 9. 

[FR Doc. 2014–11511 Filed 5–22–14; 8:45 am] 

BILLING CODE 6560–50–P 

ENVIRONMENTAL PROTECTION 

AGENCY 

40 CFR Part 52 

[EPA–R09–OAR–2014–0185; FRL–9911–03– 

Region 9] 

Approval and Promulgation of 

Implementation Plans; California; 

South Coast 1-Hour and 8-Hour Ozone 

AGENCY: Environmental Protection 

Agency (EPA). 

ACTION: Proposed rule. 

SUMMARY: The Environmental Protection 

Agency (EPA) is proposing to approve 

the portions of a State implementation 

plan (SIP) revision submitted by the 

State of California on February 13, 2013 

that relate to attainment of the 1-hour 

and 1997 8-hour ozone national ambient 

air quality standards in the Los AngelesSouth Coast area. Specifically, the EPA 

is proposing to approve the portions of 

the South Coast Air Quality 

Management District’s Final 2012 Air 

Quality Management Plan that update 

the approved control strategy for the 

1997 8-hour ozone standard and that 

provide a demonstration of attainment 

of the 1-hour ozone standard by 

December 31, 2022. In proposing 

approval, EPA finds that an attainment 

date of December 31, 2022 is 

appropriate in light of the severity of the 

1-hour ozone problem in the South 

Coast and, given the extent to which 

emissions sources in the South Coast 

have already been controlled, the 

limited emissions remaining that can be 

regulated. EPA is proposing as part of 

this action to approve new 

commitments adopted by the South 

Coast Air Quality Management District, 

updated new technology measures, and 

a new commitment by the California Air 

Resources Board to submit contingency 

measures in 2019 as necessary to meet 

the emissions reductions targets for 

2022 from implementation of new 

technology measures. 

DATES: Any comments must arrive by 

June 23, 2014. 

ADDRESSES: Submit comments, 

identified by docket number EPA–R09– 

OAR–2014–0185, by one of the 

following methods: 

• Federal eRulemaking Portal: 

www.regulations.gov. Follow the on-line 

instructions. 

• Email: tax.wienke@epa.gov. 

• Mail or deliver: Wienke Tax, Office 

of Air Planning (AIR–2), U.S. 

Environmental Protection Agency 

Region IX, 75 Hawthorne Street, San 

Francisco, CA 94105. 

Instructions: All comments will be 

included in the public docket without 

change and may be made available 

online at www.regulations.gov, 

including any personal information 

provided, unless the comment includes 

Confidential Business Information (CBI) 

or other information whose disclosure is 

restricted by statute. Information that 

you consider CBI or otherwise protected 

should be clearly identified as such and 

should not be submitted through 

www.regulations.gov or email. The 

www.regulations.gov Web site is an 

‘‘anonymous access’’ system, and EPA 

will not know your identity or contact 

information unless you provide it in the 

body of your comment. If you send 

email directly to EPA, your email 

address will be automatically captured 

and included as part of the public 

comment. If EPA cannot read your 

comments due to technical difficulties 

and cannot contact you for clarification, 

EPA may not be able to consider your 

comment. 

Docket: The index to the docket for 

this action is available electronically on 

the www.regulations.gov Web site and 

in hard copy at EPA Region IX, 75 

Hawthorne Street, San Francisco, 

California 94105. While all documents 

in the docket are listed in the index, 

some information may be publicly 

available only at the hard copy location 

(e.g., copyrighted material or large 

maps), and some may not be publicly 

available at either location (e.g., CBI). To 

inspect the hard copy materials, please 

schedule an appointment during normal 

business hours with the contact listed in 

the FOR FURTHER INFORMATION CONTACT

section below. 

FOR FURTHER INFORMATION CONTACT: 

Wienke Tax, Air Planning Office (AIR– 

2), U.S. Environmental Protection 

Agency, Region IX, (415) 947–4192, 

tax.wienke@epa.gov. 

SUPPLEMENTARY INFORMATION: 

Throughout this document, ‘‘we,’’ ‘‘us’’ 

and ‘‘our’’ refer to the EPA. 

Table of Contents 

I. Background 

II. EPA’s Review of California’s Submittal 

A. CAA Procedural and Administrative 

Requirements for SIP Submittals 

B. Attainment Demonstration 

Requirements 

1. Emissions Inventories 

a. Requirements for Emissions Inventories 

b. Base Year and Future Baseline 

Emissions Inventories in the 2012 AQMP 

2. South Coast 1-Hour Ozone Plan Control 

Strategy 

a. Requirements for Control Strategies and 

RACM Demonstrations 

b. 2012 AQMP RACM Demonstration 

c. 2012 AQMP Aggregate Emissions 

Reductions Commitments 

d. CAA Section 182(e)(5) New or Improved 

Technology Measures 

3. Applicable Attainment Date 

4. Air Quality Modeling for the 2012 1- 

Hour Ozone Attainment Demonstration 

a. CAA and Regulatory Requirements for 1- 

Hour Ozone Air Quality Modeling and 

EPA Guidance 

b. 1-Hour Attainment Demonstration 

Modeling and Weight of Evidence 

i. Modeling Approaches for the SCAQMD 

Attainment Demonstration 

ii. Results of SCAQMD Modeling 

c. EPA’s Evaluation of the Modeling 

Demonstration 

III. Proposed Action and Request for Public 

Comment 

IV. Statutory and Executive Order Reviews 

I. Background 

Ground-level ozone is an oxidant that 

is formed from photochemical reactions 

in the atmosphere between volatile 

organic compounds (VOC) and oxides of 

nitrogen (NOX) in the presence of 

sunlight. These two pollutants, referred 

to as ozone precursors, are emitted by 

many types of pollution sources 

including on-road motor vehicles (cars, 

trucks, and buses), nonroad vehicles 

and engines, power plants and 

industrial facilities, and smaller area 

sources such as lawn and garden 

equipment and paints. 


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1See 44 FR 8202 (February 8, 1979). 

2The South Coast includes Orange County, the 

southwestern two-thirds of Los Angeles County, 

southwestern San Bernardino County, and western 

Riverside County (see 40 CFR 81.305). 

3Under California law, CARB is the state agency 

that is responsible for submitting SIPs and SIP 

revisions to EPA. CARB is also responsible for the 

regulation of mobile sources in California. Regional 

air quality management districts, such as the South 

Coast Air Quality Management District (SCAQMD 

or ‘‘District’’), are responsible for developing and 

adopting regional air quality plans and for 

regulating stationary sources. Once adopted, the 

plans developed by the regional air quality 

management districts are submitted to CARB for 

adoption as part of the California SIP and then 

submitted to EPA for approval or disapproval under 

section 110 of the CAA. 

4For example, the annual number of days at any 

one monitoring station during which the 1-hour 

ozone standard was exceeded decreased from 103 

days to 6 days between 1990 and 2010 despite 

significant increases in population, employment 

and vehicle travel. The maximum 1-hour ozone 

concentration measured in the South Coast 

decreased from 0.33 ppm to 0.14 ppm over the same 

period. 

5 76 FR 82133 (December 30, 2011). 

6 62 FR 33856 (July 18, 1997). 

7On March 27, 2008 (73 FR 16436), EPA lowered 

the 8-hour ozone standard to 0.075 ppm (the 2008 

8-hour ozone standard), and on May 21, 2012, EPA 

designated the South Coast as extreme 

nonattainment for the 2008 8-hour ozone standard 

(77 FR 30088). Today’s proposed action relates to 

an attainment demonstration for the 1-hour ozone 

standard that relies heavily on the control strategy 

approved for attainment of the 1997 8-hour ozone 

standard. Attainment demonstrations for the more 

stringent 2008 8-hour ozone standard are not yet 

due. 

8 69 FR 23858 (April 30, 2004); 75 FR 24409 (May 

5, 2010). 

Under section 109 of the Clean Air 

Act (CAA or Act), EPA promulgates 

national ambient air quality standards 

(NAAQS or standards) for pervasive air 

pollutants, such as ozone. The NAAQS 

are concentration levels that, the 

attainment and maintenance of which, 

EPA has determined to be requisite to 

protect public health and welfare. In 

1979, EPA established the 1-hour ozone 

NAAQS of 0.12 parts per million 

(ppm).1 Section 110 of the CAA requires 

States to develop and submit state 

implementation plans (SIPs) to 

implement, maintain, and enforce the 

NAAQS. 

Under the Clean Air Act, as amended 

in 1977, EPA designated all areas of the 

country as ‘‘nonattainment,’’ 

‘‘attainment,’’ or ‘‘unclassifiable’’ with 

respect to each NAAQS, and in so 

doing, designated the South Coast 2 as a 

nonattainment area for photochemical 

oxidant (later ozone). See 43 FR 8962 

(March 3, 1978). States with 

nonattainment areas are required to 

submit revisions to their SIPs that 

include a control strategy necessary to 

demonstrate how the area will attain the 

NAAQS, and EPA took action on a 

number of related SIP revisions 

submitted by the California Air 

Resources Board (CARB) in the late 

1970s and 1980s for the South Coast 1- 

hour ozone nonattainment area.3

However, by 1990, like many other areas 

throughout the country, the South Coast 

had not attained the 1-hour ozone 

standard, and under the CAA 

Amendments of 1990, the South Coast 

was classified as an ‘‘extreme’’ 

nonattainment area for the 1-hour ozone 

standard with an attainment deadline of 

November 15, 2010 (56 FR 56694, 

November 6, 1991) and was subject to 

additional SIP planning requirements, 

including a revised attainment 

demonstration. 

In the wake of the classification of the 

South Coast nonattainment area as 

‘‘extreme’’ for the 1-hour ozone 

standard, CARB submitted a number of 

SIP revisions for the South Coast that 

contained attainment demonstrations 

for the 1-hour ozone standard and that 

relied on a combination of mobile 

source control measures adopted by 

CARB and stationary source control 

measures adopted by South Coast Air 

Quality Management District 

(SCAQMD). In connection with these 

submittals, EPA took the following 

actions: 

• 1994 South Coast Air Quality 

Management Plan (AQMP) and related 

state strategy (‘‘1994 AQMP’’)—EPA 

approved the 1-hour ozone attainment 

demonstration at 62 FR 1150 (January 8, 

1997); 

• 1997 AQMP, as revised in 1999 

(‘‘1997/1999 AQMP’’)—EPA approved 

the revised 1-hour ozone demonstration 

at 65 FR 18903 (April 10, 2000); and 

• 2003 AQMP and related state 

strategy (‘‘2003 AQMP’’)—EPA 

disapproved the revised 1-hour ozone 

attainment demonstration at 74 FR 

10176 (March 10, 2009). 

Each of these plans rely on a 

regulatory foundation of regulations 

adopted and implemented by the 

SCAQMD, CARB, and EPA for 

stationary and mobile sources, and also 

include commitments for new or more 

stringent regulations to achieve 

additional emissions reductions 

necessary for attainment. Each 

subsequent ozone plan then builds upon 

the foundation of the new or 

strengthened regulations that were 

adopted to support the previous plan. 

While the emissions reduction measures 

implemented under these South Coast 

ozone plans have been successful in 

reducing ozone concentrations in the 

South Coast,4 the South Coast failed to 

attain the 1-hour ozone standard by the 

applicable attainment date of 2010.5

Meanwhile, in 1997, EPA revised the 

NAAQS for ozone, setting it at 0.08 ppm 

averaged over an 8-hour timeframe 

(referred to herein as the ‘‘1997 8-hour 

ozone standard’’) to replace the existing 

1-hour ozone standard of 0.12 ppm.6 7 In 

2004, EPA designated and classified the 

South Coast area as a ‘‘severe-17’’ 

nonattainment area for the 1997 8-hour 

ozone standard but later granted CARB’s 

request to reclassify the South Coast to 

‘‘extreme’’ for the 1997 8-hour ozone 

standard.8 The corresponding 

applicable attainment year for the 1997 

8-hour ozone standard in the South 

Coast is 2023. In response to this 

designation, CARB submitted the 2007 

South Coast AQMP and related 2007 

State Strategy (‘‘2007 AQMP’’), and EPA 

took the following action: 

• 2007 AQMP and 2007 State 

Strategy, as amended in 2009 and 

2011—EPA approved the attainment 

demonstration for the 1997 8-hour 

ozone standard at 77 FR 12674 (March 

1, 2012), amended at 77 FR 70707 

(November 27, 2012). 

The 8-hour ozone control strategy in 

the 2007 AQMP builds upon the control 

strategy established under the previous 

1-hour ozone plans. In connection with 

EPA’s 2012 approval of the South Coast 

attainment demonstration for the 1997 

8-hour ozone standard in the 2007 

AQMP, EPA approved a number of 

commitments by CARB and the 

SCAQMD as part of the California SIP, 

including commitments to bring certain 

defined measures before their respective 

boards by certain dates, commitments to 

achieve certain aggregate emissions 

reductions by certain milestone years, 

and a commitment to achieve emissions 

reductions from development and 

implementation of advanced control 

technologies under CAA section 

182(e)(5). Of particular relevance for 

this proposed action, EPA approved 

CARB’s commitment to achieve 

aggregate emissions reductions (beyond 

those already accounted for in the 

baseline) of 52 tons per day (tpd) of 

VOC and 144 tpd of NOX in the South 

Coast by 2020, and CARB’s commitment 

under section 182(e)(5) to achieve an 

additional 40 tpd of VOC and 241 tpd 

of NOX in the South Coast by 2023. 

As noted above, the last South Coast 

1-hour ozone attainment demonstration 

on which EPA took action was the one 

included in the 2003 AQMP. The 2003 

AQMP revised the 1-hour ozone 

attainment demonstration approved as 

part of the 1997/1999 AQMP in light of 

new modeling results that showed that 

the approved strategy from the 1997/

1999 AQMP would not provide for 

attainment of the 1-hour ozone standard 

by the 2010 attainment deadline. 


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9See Association of Irritated Residents v. EPA, 

632 F.3d 584 (9th Cir. 2011), reprinted as amended 

on January 27, 2012, 686 F.3d 668, further amended 

February 13, 2012. 

10Section 110(k)(5) provides, in relevant part, 

that: ‘‘Whenever [EPA] finds that the [SIP] for any 

area is substantially inadequate to attain or 

maintain the relevant [NAAQS], . . . , or to 

otherwise comply with any requirement of this 

chapter, [EPA] shall require the State to revise the 

plan as necessary to correct such inadequacies.’’ 

11Our finding of substantial inadequacy under 

CAA section 110(k)(5) for failure to ‘‘adopt and 

implement’’ a 1-hour ozone attainment 

demonstration is not intended as a finding of 

nonimplementation under CAA section 179(a)(4). 

12Under CAA section 182(c)(2)(A), the State must 

submit a revision to the SIP that includes a 

demonstration that the plan, as revised, will 

provide for attainment of the ozone NAAQS. The 

attainment demonstration must be based on 

photochemical grid modeling or any other 

analytical method determined by EPA to be at least 

as effective. Section 182(c)(2)(A) applies within 

ozone nonattainment areas classified as ‘‘serious,’’ 

but as a general matter, areas classified as 

‘‘extreme’’ for the ozone nonattainment area, such 

as the South Coast, are subject to the requirements 

for lower-classified areas, such as those for 

‘‘serious’’ areas, as well as those prescribed 

specifically for ‘‘extreme’’ areas. 

13Under CAA section 182(d)(1)(A), states with 

severe or extreme ozone nonattainment areas must 

submit SIP revisions that identify and adopt 

specific transportation control strategies and 

transportation control measures to offset any growth 

in emissions from growth in vehicle miles traveled 

or numbers of vehicle trips in such areas. 

14See SCAQMD Governing Board Resolution No. 

12–19 (December 7, 2012). 

15See CARB Board Resolution No. 13–3 (January 

25, 2013). 

EPA disapproved the revised 1-hour 

ozone attainment demonstration in the 

2003 AQMP because a number of state 

control measures upon which the 

demonstration relied had been 

withdrawn from consideration. EPA’s 

action on the 2003 AQMP was 

successfully challenged. In response to 

the court’s decision 9 and in recognition 

of the fact that the South Coast had in 

fact failed to attain the 1-hour ozone 

standard by 2010, EPA issued a ‘‘SIP 

call’’ to California at 78 FR 889 (January 

7, 2013) under CAA section 110(k)(5).10

In our final SIP call, we explained that 

states remain obligated to adopt and 

implement an attainment demonstration 

plan for the 1-hour ozone standard, 

notwithstanding the revocation of the 1- 

hour ozone standard in 2005, under 

EPA’s ‘‘anti-backsliding’’ regulations 

governing the transition from the 1-hour 

ozone standard to the 1997 8-hour 

ozone standard.11 See 40 CFR 

51.905(a)(1)(i). 

Under our SIP call, California was 

required to submit a SIP revision that 

meets the requirements of CAA section 

182(c)(2)(A) 12 and that demonstrates 

attainment of the 1-hour ozone standard 

as expeditiously as practicable but no 

later than five years from the effective 

date of the final SIP call, absent 

justification for a later date, not to 

exceed 10 years beyond the effective 

date of the final SIP call. In considering 

whether a period longer than five years 

is warranted, EPA must consider the 

severity of the remaining nonattainment 

problem in the South Coast and the 

availability and feasibility of pollution 

control measures. See CAA section 

172(a)(2). 

The subject of today’s proposed action 

is a SIP revision that was submitted in 

part to respond to EPA’s SIP call for a 

revised attainment demonstration for 

the 1-hour ozone standard. As discussed 

later in this document, the submitted 1- 

hour ozone attainment demonstration 

relies heavily on the approved control 

strategy for the 1997 8-hour ozone 

standard that is discussed above in 

connection with EPA’s approval of the 

2007 AQMP. 

II. EPA’s Review of California’s 

Submittal 

On December 7, 2012, SCAQMD 

adopted the Final 2012 Air Quality 

Management Plan (‘‘2012 AQMP’’), and 

later forwarded it to CARB for approval 

and submittal to EPA. The 2012 AQMP 

updates the approved 1997 8-hour 

ozone control strategy, includes 

attainment demonstrations for the 1- 

hour ozone standard and the 2006 PM2.5

standard, and includes demonstrations 

intended to address the vehicle-milestraveled emissions offset requirements 

of CAA section 182(d)(1)(A) 13 for the 1- 

hour ozone and 1997 8-hour ozone 

standards. With respect to the 1997 8- 

hour ozone standard, in adopting the 

2012 AQMP, the SCAQMD indicated 

that, while the 2012 AQMP updates the 

approved 1997 8-hour ozone control 

strategy with new measures designed to 

reduce reliance on CAA section 

182(e)(5) long-term (i.e., advanced 

control technologies) measures for VOC 

and NOX reductions, it is not intended 

as an update to other elements of the 

approved 8-hour ozone control plan.14

On January 25, 2013, CARB adopted 

the 2012 AQMP as a revision to the 

California SIP. On February 13, 2013, 

CARB submitted the 2012 AQMP to 

EPA along with the relevant CARB and 

SCAQMD board resolutions and other 

supporting material. In adopting the 

2012 AQMP, CARB committed to 

develop, adopt, and submit contingency 

measures by 2019 if advanced control 

technology measures do not achieve 

planned reductions as required by CAA 

section 182(e)(5).15 As noted above, the 

2012 AQMP contains a number of SIP 

elements for a number of pollutants. 

Today, we are proposing action on the 

portions of the 2012 AQMP that update 

the approved 1997 8-hour ozone control 

strategy from the 2007 AQMP and that 

provide an attainment demonstration for 

the 1-hour ozone standard. Specifically, 

the relevant elements of the 2012 AQMP 

covered by our proposed action include: 

• CARB’s resolution of adoption 

(Resolution 13–3); 

• SCAQMD’s resolution of adoption 

(Resolution 12–19); 

• The ozone-related portions of 

chapter 4 of the 2012 AQMP (‘‘Control 

Strategy and Implementation’’); 

• Appendices IV–A (‘‘District’s 

Stationary Source Control Measures’’), 

IV–B (‘‘Proposed Section 182(e)(5) 

Implementation Measures’’), and IV–C 

(‘‘Regional Transportation Strategy and 

Control Measures’’); and 

• Appendix VII (‘‘South Coast 2012 1- 

hour ozone attainment demonstration’’), 

which includes 4 attachments, one of 

which includes a demonstration of 

reasonably available control measures 

(RACM). 

In addition, EPA requested clarification 

of the commitments made by SCAQMD 

and CARB in connection with the 1- 

hour ozone attainment demonstration in 

the 2012 AQMP, and the two agencies 

responded with the following letters 

clarifying their respective commitments: 

• Letter from Barry R. Wallerstein, 

D.Env, SCAQMD Executive Officer, to 

Jared Blumenfeld, Regional 

Administrator, EPA Region IX, May 1, 

2014 (‘‘Wallerstein Letter’’); and 

• Letter from Richard W. Corey, 

Executive Officer, CARB, to Jared 

Blumenfeld, Regional Administrator, 

EPA Region IX, May 2, 2014 (‘‘Corey 

Letter’’). 

For simplicity, in referring to the 

elements on which we are acting, we are 

using the term ‘‘2012 AQMP’’ even 

though we recognize that the 2012 

AQMP includes other elements in 

addition to those covered in this 

proposed action. 

The 1-hour ozone attainment 

demonstration includes base year and 

future year emissions inventory 

estimates, a control strategy and RACM 

demonstrations, and an attainment 

demonstration based on photochemical 

modeling. The control strategy for the 

revised 1-hour ozone demonstration 

relies on the same SCAQMD measures 

referred to by SCAQMD as new 

measures that update the approved 1997 

8-hour ozone control strategy. 

A. CAA Procedural and Administrative 

Requirements for SIP Submittals 

CAA sections 110(a)(1) and (2) and 

110(l) require a state to provide 

reasonable public notice and 

opportunity for public hearing prior to 


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16See 2012 AQMP, Appendix III. 

17See 2012 AQMP, Appendix III, pages III–1–5, 

III–1–11, and III–1–14–15. 

18EMFAC 2011 was approved by EPA for use in 

SIPs on March 6, 2013 (see 78 FR 14533). 

the adoption and submittal of a SIP or 

SIP revision. To meet this requirement, 

every SIP submittal should include 

evidence that adequate public notice 

was given and a public hearing was held 

consistent with EPA’s implementing 

regulations in 40 CFR 51.102. 

The SCAQMD provided a public 

comment period and held a public 

hearing prior to its December 7, 2012 

adoption of the 2012 AQMP. CARB 

provided the required public notice and 

opportunity for public comment prior to 

its January 25, 2013 public hearing on 

the 2012 AQMP. CARB’s February 13, 

2013 SIP submittal package includes 

notices of the SCAQMD and CARB 

public hearings, as evidence that all 

hearings were properly noticed. We 

therefore find that CARB’s February 13, 

2013 SIP revision submittal meets the 

procedural requirements of CAA 

sections 110(a) and 110(l). 

B. Attainment Demonstration 

Requirements 

CAA section 182(c)(2)(A) requires 

states with ozone nonattainment areas 

classified as serious, severe or extreme 

to submit plans that demonstrate 

attainment of the 1-hour ozone standard 

as expeditiously as practicable but no 

later than the outside date established in 

the CAA. The attainment demonstration 

should include technical analyses that 

locate and identify sources of emissions 

that are contributing to violations of the 

1-hour ozone standard within the 

nonattainment area and adopted 

measures with schedules for 

implementation and other means and 

techniques necessary and appropriate 

for attainment. In order to determine 

whether the area has demonstrated 

attainment ‘‘as expeditiously as 

practicable,’’ the area must provide a 

demonstration that all RACM are 

implemented. CAA 172(c)(1). In 

addition, the ‘‘. . . attainment 

demonstration must be based on 

photochemical grid modeling or any 

other analytical method determined by 

the Administrator . . . to be at least as 

effective.’’ CAA section 182(c)(2)(A). 

1. Emissions Inventories 

a. Requirements for Emissions 

Inventories 

Attainment demonstrations rely upon 

emissions inventories that reflect 

different scenarios, including existing 

conditions (‘‘base year’’) and future 

‘‘baseline’’ conditions. The base year 

emission inventory must be a 

comprehensive, accurate, current 

inventory of actual emissions from all 

sources of the relevant pollutant. Future 

baseline emissions inventories must 

reflect the most recent population, 

employment, travel and congestion 

estimates for the area. In this context, 

‘‘baseline’’ emissions represent an 

estimate of the emissions that would 

occur in an area if no additional 

controls other than those already 

adopted are implemented. 

b. Base Year and Future Baseline 

Emissions Inventories in the 2012 

AQMP 

The 2012 AQMP includes a 2008 base 

year and a 2022 baseline emissions 

inventory for the South Coast 1-hour 

nonattainment area. Documentation for 

these inventories is found in appendix 

III (‘‘Base and Future Year Emission 

Inventory’’), and section 3 of appendix 

VII, of the 2012 AQMP. The 2008 base 

year ozone precursor inventory provides 

the basis for the control measure 

analysis and the attainment 

demonstration in the South Coast 2012 

1-hour ozone attainment demonstration. 

VOC and NOX emissions are grouped 

into two general categories, stationary 

sources and mobile sources. Stationary 

sources can be further divided into 

‘‘point’’ and ‘‘area’’ sources. Point 

sources typically refer to permitted 

facilities and have one or more 

identified and fixed pieces of equipment 

and emissions points. Permitted 

facilities are required to report their 

emissions to the SCAQMD Annual 

Emissions Reporting Program. Area 

sources consist of widespread and 

numerous smaller emission sources, 

such as small permitted facilities, 

households, and road dust. The mobile 

sources category can be divided into 

two major subcategories, ‘‘on-road’’ and 

‘‘off-road’’ mobile sources. On-road 

mobile sources include light-duty 

automobiles, light-, medium-, and 

heavy-duty trucks, and motorcycles. 

Off-road mobile sources include aircraft, 

locomotives, construction equipment, 

mobile equipment, and recreational 

vehicles. 

The emissions inventories in the 2012 

AQMP were developed using data 

provided by CARB, the California 

Department of Transportation, and 

SCAG. These agencies collect data 

(industry growth factors, socioeconomic projections, travel activity 

levels, emission factors, emission 

speciation profiles, and emissions) and 

developing methodologies (for example, 

model and demographic forecast 

improvements) used to generate 

comprehensive emissions inventories. 

CARB maintains statewide inventories 

in its California Emissions Inventory 

Development and Reporting System 

(CEIDARS) and California Emission 

Forecasting and Planning Inventory 

(CEFIS).16

Area source inventories are developed 

by CARB and the District for 

approximately 400 area source 

categories. For the 2008 base year 

inventory, a number of area source 

category emissions inventories used 

existing methodologies with updated 

activity data such as fuel or sales data. 

Both CARB and the District are 

continuously updating and improving 

emissions inventory methodologies; for 

this plan, five new categories were 

added to the inventory, other 

methodologies were refined, and some 

area source categories were expanded.17

CARB prepares on-road and most of 

the off-road inventories from its 

Emission FACtor (EMFAC) 2011 model 

and 2011 In-Use Fleet Off-Road 

models.18 Caltrans provides information 

on highway projects. SCAG uses these 

data to estimate and project vehicle 

miles travelled (VMT) and speeds. 

SCAG also provides socioeconomic 

projections and projections of 

transportation activity data for use in 

on-road inventory development. 

Table 1 depicts a summary of the 

2008 VOC and NOX emissions inventory 

for the South Coast 1-hour ozone 

nonattainment area as presented in the 

2012 AQMP. Emissions estimates in 

table 1 are broken down by the major 

source categories described above. 

Based on the inventory for 2008, 

stationary and area sources currently 

account for 40 percent of VOC 

emissions, and 10 percent of the NOX

emissions, in the South Coast while 

mobile sources account for 60 percent of 

the VOC emissions and 90 percent of 

the NOX emissions. 


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19See 2012 AQMP, Appendix III, page III–1–1. 

TABLE 1—SUMMARY OF SOUTH COAST AIR BASIN 2008 VOC AND NOX EMISSIONS INVENTORY

[Summer planning inventory, tpd] 

Source category VOC NOX

Fuel Combustion .............................................................................................................................................................. 14 41 

Waste Disposal ................................................................................................................................................................ 12 2 

Cleaning and Surface Coatings ....................................................................................................................................... 43 0 

Petroleum Production and Marketing .............................................................................................................................. 41 0 

Industrial Processes ........................................................................................................................................................ 19 0 

Solvent Processes ........................................................................................................................................................... 126 0 

Miscellaneous Processes ................................................................................................................................................ 9 44 

Subtotal—Stationary and Area Sources .................................................................................................................. 264 87 

On-road Vehicles ............................................................................................................................................................. 213 426 

Off-road Vehicles ............................................................................................................................................................. 162 208 

Subtotal—Mobile Sources ........................................................................................................................................ 375 634 

Total—South Coast ........................................................................................................................................... 639 721 

Source: 2012 AQMP, appendix VII, table VII–3–1. 

Table 2 presents a summary of future 

baseline emissions in the South Coast in 

2022. In this instance, future baseline 

emissions reflect SCAQMD regulations 

adopted as of June 2012 and CARB rules 

adopted by August 2011 19 as well as the 

latest forecasts of growth in population, 

employment, and vehicle travel. 

Generally, EPA will approve a State 

plan that takes emissions reduction 

credit for a control measure only where 

EPA has approved the measure as part 

of the SIP, or in the case of certain onroad and nonroad (or ‘‘off-road’’) 

measures, where EPA has issued the 

related waiver of preemption or 

authorization under CAA section 209(b) 

or section 209(e). Thus, to take credit for 

the emissions reductions from newlyadopted or amended SCAQMD rules for 

stationary sources, the related rules 

must be approved by EPA into the SIP. 

Table 3 lists the SCAQMD regulations 

for which specific emissions reduction 

credit was taken in the future baseline 

emissions estimates for the 2012 AQMP. 

See 2012 AQMP, appendix III, table III– 

2–2B. As shown in table 3, EPA has 

approved all of these regulations into 

the SIP. Most of these regulations have 

been amended a number of times by 

SCAQMD, and, with three exceptions, 

EPA has approved the most recently 

amended versions of the regulations 

into the SIP. As to the three exceptions 

(Rules 1146, 1146.1, and 1147), EPA 

anticipates taking final action on the 

most recently amended versions of the 

regulations prior to taking final action 

on the revised 1-hour ozone attainment 

demonstration. 

With respect to mobile sources, we 

have placed a table in the docket that 

shows, among other things, the CARB 

regulations adopted through August 

2011. In general, CARB regulations 

adopted through August 2011 and 

included in the future baseline are 

approved into the SIP, waived or 

authorized and thus emissions 

reduction credit for them in the future 

baseline is warranted. For example, EPA 

approved CARB’s Truck and Bus Rule at 

77 FR 20308 (April 4, 2012); EPA 

authorized CARB’s Cleaner In-Use OffRoad Equipment Regulation at 78 FR 

58090 (September 20, 2013); EPA 

authorized CARB’s At-Berth Regulation, 

which reduces emissions from diesel 

auxiliary engines on contained ships, 

passenger ships and refrigerated cargo 

ships while berthing at a California port, 

at 76 FR 77515 (December 13, 2011); 

and EPA waived preemption for CARB’s 

Truck Idling Regulation at 77 FR 9239 

(February 16, 2012). EPA is anticipating 

final action on CARB’s amended 

Consumer Products Regulation prior to 

taking final action on the revised 1-hour 

ozone attainment demonstration. 

TABLE 2—SUMMARY OF SOUTH COAST AIR BASIN 2022 VOC AND NOX EMISSIONS INVENTORY

[Summer planning inventory, tpd] 

Source category VOC NOX

Fuel Combustion .............................................................................................................................................................. 14 28 

Waste Disposal ................................................................................................................................................................ 14 2 

Cleaning and Surface Coatings ....................................................................................................................................... 55 0 

Petroleum Production and Marketing .............................................................................................................................. 36 0 

Industrial Processes ........................................................................................................................................................ 17 0 

Solvent Processes ........................................................................................................................................................... 112 0 

Miscellaneous Processes ................................................................................................................................................ 9 40 

Subtotal—Stationary and Area Sources .................................................................................................................. 258 70 

On-road Vehicles ............................................................................................................................................................. 73 131 

Off-road Vehicles ............................................................................................................................................................. 109 137 

Subtotal—Mobile Sources ........................................................................................................................................ 182 267 

Total—South Coast ........................................................................................................................................... 440 337 

Source: Interpolated for year 2022 from 2012 AQMP, Appendix III, tables B–4 and B–5. 


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Emissions in table 2 are also broken 

down by the major source categories 

described above. A comparison between 

future baseline emissions in table 2 with 

the corresponding base year (2008) 

emissions in table 1 shows that, 

assuming current controls, there will be 

only modest changes in emissions from 

stationary and area sources but 

substantial decreases in emissions from 

mobile sources. However, even with the 

substantial decrease in mobile sources 

emissions relative to 2008, mobile 

sources will still account for 40 percent 

of the VOC, and 80 percent of the NOX, 

basin-wide inventory in 2022. 

TABLE 3—DISTRICT MEASURES INCLUDED IN THE FUTURE YEAR BASELINE EMISSIONS

Rule Description 

Date of SCAQMD 

adoption or most 

recent amendment 

EPA Approval 

(unless otherwise noted) 

Rule 1110.2 ...... Emissions from Gaseous- and Liquid-Fueled Internal Combustion Engines.February 1, 2008 ....... 74 FR 18995, April 27, 2009. 

Rule 1111 ......... Reduction of NOX Emissions from Natural-GasFired, Fan-Type Central Furnaces.November 6, 2009 ..... 75 FR 46845, August 4, 2010. 

Rule 1113 ......... Architectural Coatings ........................................... June 3, 2011 ............. 78 FR 18244, March 26, 2013. 

Rule 1118 ......... Control of Emissions from Refinery Flares ........... November 4, 2005 .... 72 FR 49196, August 28, 2007. 

Rule 1121 ......... Control of Nitrogen Oxides from Residential-Type 

Natural-Gas-fired Water Waters.

September 3, 2004 ... 74 FR 20880, May 6, 2009. 

Rule 1133.2 ...... Emissions Reductions from Co-Composting Operations.January 10, 2003 ...... 69 FR 43518, July 21, 2004. 

Rule 1133.3 ...... Emission Reductions from Greenwaste 

Composting Operations.

July 8, 2011 ............... 77 FR 71129, November 29, 2012. 

Rule 1143 ......... Consumer Paint Thinners and Multipurpose Solvents.December 3, 2010 .... 76 FR 70888, November 16, 2011. 

Rule 1144 ......... Metalworking Fluids and Direct Contact Lubricants.July 9, 2010 ............... 76 FR 70888, November 16, 2011. 

Rule 1146 ......... Emissions of Oxides of Nitrogen from Industrial, 

Institutional, and Commercial Boilers, Steam 

Generators and Process Heaters.

September 5, 2008 ... Proposed limited approval/limited disapproval at 

76 FR 40303 (July 8, 2011). 

Rule 1146.1 ...... Emissions of Oxides of Nitrogen from Small Industrial, Institutional, and Commercial Boilers, 

Steam Generators and Process Heaters.

September 5, 2008 ... Proposed limited approval/limited disapproval at 

76 FR 40303 (July 8, 2011). 

Rule 1146.2 ...... Emissions of Oxides of Nitrogen from Large 

Water Heaters and Small Boilers and Process 

Heaters.

May 5, 2006 .............. 73 FR 74027, December 5, 2008. 

Rule 1147 ......... NOX Reductions from Miscellaneous Sources ..... September 9, 2011 ... December 5, 2008 version of rule approved at 75 

FR 46845, August 4, 2010. 

Rule 1149 ......... Storage Tank and Pipeline Cleaning and 

Degassing.

May 2, 2008 .............. 74 FR 67821, December 21, 2009. 

Rule 1151 ......... Motor Vehicle and Mobile Equipment Non-Assembly Line Coating Operations.December 2, 2005 .... 78 FR 58959, September 24, 2013. 

Rule 1177 ......... Liquefied Petroleum Gas Transfer and Dispensing.June 1, 2012 ............. 79 FR 364, January 3, 2014. 

Rule 1178 ......... Further Reductions of VOC Emissions from Storage Tanks at Petroleum Facilities.April 7, 2006 .............. 72 FR 49196, August 28, 2007. 

We have reviewed the emissions 

inventories developed for the 2012 

South Coast 1-hour ozone attainment 

demonstration, and the inventory 

methodologies used by the SCAQMD for 

consistency with CAA requirements and 

EPA’s guidance. We find that the 2008 

base year inventory is a comprehensive, 

accurate, and current inventory of ozone 

precursor emissions in the South Coast 

1-hour ozone nonattainment area, and 

that 2008 is an appropriate base year for 

the revised 1-hour ozone attainment 

demonstration, and that the future 

baseline emissions projections for 2022 

reflect appropriate emissions 

calculation methods and the latest 

planning assumptions. Therefore, we 

find the base year and future baseline 

emissions inventories to be acceptable 

for the purposes of developing a 1-hour 

ozone attainment demonstration. 

2. South Coast 1-Hour Ozone Plan 

Control Strategy 

a. Requirements for Control Strategies 

and RACM Demonstrations 

EPA’s SIP call required California to 

submit a SIP revision that meets the 

requirements of CAA section 

182(c)(2)(A), which requires a 

demonstration that the SIP, as revised, 

will provide for attainment of the 1-hour 

ozone standard by the applicable 

attainment date. 78 FR 889, at 890 

(January 7, 2013). In this case, the 

applicable attainment date is prescribed 

by CAA section 172(a)(2)(A), which is 

the date by which attainment can be 

achieved as expeditiously as 

practicable, but no later than February 

6, 2018 (five years from the effective 

date of the SIP call). However, EPA may 

extend the attainment date to the extent 

EPA determines appropriate, for a 

period of no greater than February 6, 

2023 (ten years from the effective date 

of the SIP call), considering the severity 

of nonattainment and the availability 

and feasibility of pollution control 

measures. 

The 2012 AQMP includes a 

demonstration of attainment for the 1- 

hour ozone standard by December 31, 

2022 and thus relies on an extension 

beyond the five-year deadline under 

CAA section 172(a)(2)(A). In section 

II.B.3 of this document, we provide our 

rationale for proposing approval of the 

extension in the attainment date to 

December 31, 2022. Our proposed 

approval of December 31, 2022 as the 

applicable attainment date depends in 

part upon California’s showing that the 

2012 AQMP provides for 

implementation of all RACM as 


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29718 Federal Register / Vol. 79, No. 100 / Friday, May 23, 2014 / Proposed Rules 

20The ‘‘General Preamble for the Implementation 

of Title I of the Clean Air Act Amendments of 

1990,’’ published at 57 FR 13498 on April 16, 1992, 

describes EPA’s preliminary view on how we 

would interpret various SIP planning provisions in 

title I of the CAA as amended in 1990, including 

those planning provisions applicable to the 1-hour 

ozone standard. 

expeditiously as practicable (including 

such reductions in emissions from 

existing sources in the area as may be 

obtained through the adoption, at a 

minimum, of reasonably available 

control technology (RACT)). See CAA 

section 172(c)(1). 

In addition to RACM, to meet the 

requirements of CAA section 

182(c)(2)(A), a 1-hour ozone attainment 

demonstration must include other 

‘‘enforceable emission limitations, and 

such other control measures, means or 

techniques * * *, as well as schedules 

and timetables for compliance, as may 

be necessary or appropriate to provide 

for attainment * * * by the applicable 

attainment date * * *.’’ CAA section 

172(c)(6). The CAA allows ozone 

nonattainment areas classified as 

‘‘extreme,’’ such as the South Coast, to 

include ‘‘provisions * * * which 

anticipate development of new control 

techniques or improvement of existing 

control technologies, * * * if the State 

demonstrates * * * that—(A) such 

provisions are not necessary to achieve 

the incremental emission reductions 

required during the first 10 years after 

the date of the enactment of the Clean 

Air Act Amendments of 1990; and (B) 

the State has submitted enforceable 

commitments to develop and adopt 

contingency measures to be 

implemented * * * if the anticipated 

technologies do not achieve planned 

reductions.’’ CAA section 182(e)(5). The 

measures included in the plan that 

describe the mechanisms for developing 

and implementing new control 

techniques or improvements in existing 

control technologies and achieving the 

planned emissions reductions are 

referred to as ‘‘new technology’’ 

measures. 

The control strategy for the 1-hour 

ozone attainment demonstration in the 

2012 AQMP relies on all three types of 

strategies to reduce basin-wide 

emissions to the extent necessary to 

demonstrate attainment of the 1-hour 

ozone standard (i.e., reduce emissions to 

410 tpd of VOC and 150 tpd of NOX): 

implementation of RACM; other control 

measures, means or techniques; and 

new technology measures. In this case, 

the phrase, ‘‘other control measures, 

means, or techniques’’ refers to the 

commitments made by the SCAQMD 

and CARB to bring certain regulatory 

initiatives to their respective boards on 

a certain schedule and to meet certain 

aggregate emissions reductions in 

certain years. The overall control 

strategy and emissions reductions from 

the various components is presented in 

table 4. 

TABLE 4—SUMMARY OF SOUTH COAST’S 1-HOUR OZONE ATTAINMENT DEMONSTRATION CONTROL STRATEGY

[Summer planning inventory (tpd)] 

Emissions scenario VOC NOX

Year 2008 Base Year a .................................................................................................................................................... 593 754 

Emission Reductions from Baseline Measures ............................................................................................................... 153 419 

Year 2022 Baseline .................................................................................................................................................. 440 335 

SCAQMD’s New Aggregate Emissions Reduction Commitment .................................................................................... 6 11 

CARB’s Existing Aggregate Emissions Reduction Commitment .................................................................................... 7 24 

New Technology Measures ............................................................................................................................................. 17 150 

Year 2022 With Fulfillment of Commitments ................................................................................................................... 410 150 

aThe modeling runs that were used to demonstrate attainment of the 1-hour ozone standard in the 2012 AQMP were based on the base year 

(2008) summer planning inventories (see table 1 above) with adjustments made for weekly and daily temperature variations. See 2010 AQMP, 

appendix VII, page VII–51. 

With respect to commitments, the 1- 

hour ozone attainment demonstration in 

the 2012 AQMP includes certain new 

commitments adopted by SCAQMD and 

relies on existing commitments by 

CARB that were approved by EPA 

through approval of the attainment 

demonstration for the 1997 8-hour 

ozone standard in the 2007 AQMP. The 

‘‘new technology’’ provision in the 2012 

AQMP updates the corresponding 

provision in the 2007 AQMP by proving 

greater specificity in the description of 

the actions that are or will be taken to 

achieve emissions reductions from 

development or deployment of 

advanced control technologies or 

techniques. The focus of the ‘‘new 

technology’’ provisions is the mobile 

source category of emissions in light of 

the extent to which such sources 

contribute to the overall inventory of 

ozone precursors. 

b. 2012 AQMP RACM Demonstration 

CAA section 172(c)(1) requires that 

each attainment plan ‘‘provide for the 

implementation of all reasonably 

available control measures as 

expeditiously as practicable (including 

such reductions in emissions from 

existing sources in the area as may be 

obtained through the adoption, at a 

minimum, of reasonably available 

control technology), and shall provide 

for attainment of the national primary 

ambient air quality standards.’’ 

EPA has previously provided 

guidance interpreting the RACM 

requirement in the General Preamble at 

13560 20 and in a memorandum entitled 

‘‘Guidance on Reasonably Available 

Control Measures (RACM) Requirements 

and Attainment Demonstration 

Submissions for the Ozone NAAQS,’’ 

John Seitz, November 30, 1999. (Seitz 

memo). In summary, EPA guidance 

provides that to address the requirement 

to adopt all RACM, states should 

consider all potentially reasonable 

control measures for source categories 

in the nonattainment area to determine 

whether they are reasonably available 

for implementation in that area and 

whether they would, if implemented 

individually or collectively, advance the 

area’s attainment date by one year or 

more. See Seitz memo and General 

Preamble at 13560; see also ‘‘State 

Implementation Plans; General 

Preamble for Proposed Rulemaking on 

Approval of Plan Revisions for 

Nonattainment Areas,’’ 44 FR 20372 

(April 4, 1979) and Memorandum dated 

December 14, 2000, from John S. Seitz, 

Director, Office of Air Quality Planning 

and Standards, ‘‘Additional Submission 

on RACM from States with Severe OneHour Ozone Nonattainment Area SIPs.’’ 

In the following paragraphs, we discuss 

each element of the control strategy and 

provide a rationale for why we find it 

acceptable. 

First, as noted above, EPA approved 

the 2007 AQMP for the 1997 8-hour 

ozone NAAQS in 2012. As part of that 


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21 2012 AQMP, appendix VII, attachment 4, page 

VII–10. 

action, EPA approved the related RACM 

demonstration. See 77 FR 12674, at 

12694 (March 1, 2012). In so doing, we 

approved the individual stationarysource RACM demonstration from 

SCAQMD, the transportation-related 

RACM demonstration from SCAG, and 

the mobile and area source RACM 

demonstration from CARB. See 76 FR 

57872, at 57877–57881 (September 16, 

2011). 

To update the RACM demonstration 

for the 2012 AQMP, the SCAQMD 

followed a similar process as it had used 

for the 2007 AQMP. That is, the 

SCAQMD conducted a process to 

identify RACM for the South Coast that 

involved public meetings to solicit 

input, evaluation of EPA’s suggested 

RACM, and evaluation of other air 

agencies’ regulations. See 2012 AQMP, 

appendix VII, attachment 4. As part of 

this process, the SCAQMD evaluated 

measures implemented in other 

nonattainment areas based on the 

severity of the nonattainment situation 

as well as attainment dates (including 

the San Joaquin Valley, the San 

Francisco Bay Area, Ventura, DallasFort Worth, the New York Metro area, 

and the Houston-Galveston area) and 

measures identified by the Lake 

Michigan Air Directors Consortium 

(LADCO). The SCAQMD also held 

meetings with CARB, technical experts, 

local government representatives, and 

the public during development of the 

2012 AQMP, and sponsored an air 

quality technology symposium in 

September of 2011, which generated 

additional potential control measures. 

In addition, the SCAQMD reevaluated 

existing SIP-approved SCAQMD rules 

and regulations. 

From the set of identified potential 

controls, the SCAQMD then screened 

the identified measures and rejected 

those that would not individually or 

collectively advance attainment in the 

area, had already been adopted as rules, 

or were in the process of being adopted. 

The remaining measures were evaluated 

taking into account baseline inventories, 

available control technologies, and 

potential emission reductions as well as 

whether the measure could be 

implemented on a schedule that would 

advance attainment of the 1-hour ozone 

standard by at least a year, assuming a 

2022 attainment deadline. In addition, 

to capture all improvements in 

innovative control technologies and 

identify areas for improvement in its 

regulations, SCAQMD staff reevaluated 

all the SCAQMD’s source-specific rules 

and regulations and compared these 

requirements to more than 100 rules 

that had recently been adopted in four 

other California air districts (San 

Joaquin Valley, Sacramento, Ventura, 

and San Francisco Bay Area).21

Based on its RACM analysis 

summarized above, SCAQMD 

concluded that, in general, its existing 

rules and regulations are equivalent to, 

or more stringent than, other Districts’ 

rules. In the few areas where this was 

not the case, SCAQMD staff have 

developed one or more control measures 

for inclusion in the 2012 AQMP. In 

adopting the 2012 AQMP, the SCAQMD 

committed to develop, adopt, submit 

and implement 15 new measures, 

including measures at least as stringent 

as those identified in other California 

districts’ SIPs, and several innovative 

measures. Table 5 lists these measures 

along with the related adoption and 

implementation date, and estimated 

emissions reductions. For a detailed 

description of the measures to which 

the SCAQMD has committed, please see 

appendix VI–A of the 2012 AQMP. 

TABLE 5—DISTRICT CONTROL MEASURES IN 2012 AQMP 1-HOUR OZONE ATTAINMENT DEMONSTRATION

Number and title Adoption Implementation period 

Reduction 

(tons per day (tpd)) 

by 2023 

VOC NOX

CTS–01—Further VOC Reductions from Architectural 

Coatings (Rule 1113).

2015–2016 ......................... 2018–2020 ......................... 2–4 ....................

CTS–02—Further Emission Reduction from Miscellaneous Coatings, Adhesives, Solvents and Lubricants.2013–2016 ......................... 2015–2018 ......................... 1–2 ....................

CTS–03—Further VOC Reductions from Mold Release 

Products.

2014 ................................... 2016 ................................... 0.8–2 ....................

CMB–01—Further NOX Reductions from RECLAIM ..... 2015 ................................... 2020 ................................... .................... 3–5 

CMB–02—NOX Reductions from Biogas Flares ............ 2015 ................................... Beginning 2017 .................. .................... TBD 

CMB–03—Reductions from Commercial Space Heating Phase I—2014 (Tech Assessment), Phase II— 

2016.

Beginning 2018 .................. .................... 0.18 

FUG–01—VOC Reductions from Vacuum Trucks ......... 2014 ................................... 2016 ................................... 1 ....................

FUG–02—Emission Reduction from LPG Transfer and 

Dispensing—Phase II.

2015 ................................... 2017 ................................... 1–2 ....................

FUG–03—Further Reductions from Fugitive VOC Emissions.2015–2016 ......................... 2017–2018 ......................... 1–2 ....................

MCS–01—Application of All Feasible Measures ............ Ongoing ............................. Ongoing ............................. TBD TBD 

MCS–02—Further Emission Reductions from Green 

waste Processing (Chipping and Grinding Operations 

not associated with composting).

2015 ................................... 2016 ................................... 1 ....................

MCS–03—Improved Start-up, Shutdown and Turnaround Procedures.Phase I—2012 (Tech Assessment), Phase II— 

TBD.

Phase I—2013 (Tech Assessment), Phase II— 

TBD.

TBD TBD 

INC–01—Economic Incentive Programs to Adopt Zero 

and Near-Zero Technologies.

2014 ................................... Within 12 months after 

funding availability.

.................... TBD 

INC–02—Expedited Permitting and CEQA Preparation 

Facilitating the Manufacturing of Zero and Near-Zero 

Technologies.

2014–2015 ......................... Beginning 2015 .................. N/A N/A 


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22See 2012 AQMP, pages 4–41 through 4–46, and 

Wallerstein Letter. 

23The Sustainable Communities Strategy is new 

to this RTP cycle and is required by California 

Senate Bill 375. While the focus of the SCS is 

greenhouse gases, concurrent criteria pollutant 

reductions occur. The emissions benefits associated 

with the RTP/SCS are reflected in the projected 

baseline emissions inventories in the 2012 AQMP. 

2012 AQMP, appendix VII, page VII–23. 

24SCAQMD estimates that extension of the SOON 

provision will achieve 7.5 tpd of NOX reductions 

by 2022. 

TABLE 5—DISTRICT CONTROL MEASURES IN 2012 AQMP 1-HOUR OZONE ATTAINMENT DEMONSTRATION—Continued 

Number and title Adoption Implementation period 

Reduction 

(tons per day (tpd)) 

by 2023 

VOC NOX

EDU–01—Further Criteria Pollutant Reductions from 

Education, Outreach and Incentives.

Ongoing ............................. Ongoing ............................. N/A N/A 

Source: 2012 AQMP, table 4–4. Note: TBD = to be determined once the specific inventory and control approach for the measure are identified. 

N/A = not applicable given nature of the measure. 

More specifically, the SCAQMD has 

committed to develop, adopt, submit 

and implement the 15 new measures 

listed in table 5 to achieve, in aggregate, 

emission reductions of 5.8 tpd of VOC 

and 10.7 tpd of NOX by January 1, 2022 

unless these measures or a portion 

thereof are found infeasible and 

substitute measures that can achieve 

equivalent reductions in the same 

implementation timeframes are 

adopted.22 The 2012 AQMP describes a 

process for public review of findings of 

feasibility and the related measure 

substitution. 

As to the few remaining measures that 

the SCAQMD rejected from its RACM 

analysis, the SCAQMD determined that 

these measures would not advance the 

attainment date due to the insignificant 

or unquantifiable emissions reductions 

they would potentially generate. See 

2012 AQMP, appendix VII, attachment 

2, page VII–10. Based on our review of 

the SCAQMD’s latest RACM review 

process and the SCAQMD’s proposed 

commitment to new measures (listed in 

table 5), we find that the 2012 AQMP 

demonstrates RACM for stationary 

sources in the South Coast. 

With respect to transportation 

sources, SCAG’s RACM analysis focused 

on transportation control measures 

(TCMs). TCMs are, in general, measures 

designed to reduce emissions from onroad motor vehicles through reductions 

in vehicle miles traveled or traffic 

congestion. SCAG’s analysis is 

described in appendix VII, pages VII–20 

to VII–23 of the 2012 AQMP. The TCMs 

in the 2012 AQMP are derived from 

TCM projects in the 2012–2035 SCAG 

Regional Transportation Plan/

Sustainable Communities Strategy 

(RTP/SCS).23 SCAG’s evaluation, 

described beginning on page VII–20 of 

appendix VII of the 2012 AQMP, 

resulted in extensive local government 

commitments to implement programs to 

reduce auto travel and improve traffic 

flow. Attachment 2 to appendix VIII 

(‘‘Vehicle Miles Traveled Emissions 

Offset Demonstration’’) to the 2012 

AQMP contains the list of TCMs under 

development and newly scheduled 

TCMs. See also 2012 AQMP, appendix 

IV–C. 

In so doing, SCAG evaluated a wide 

variety of TCMs, including those 

measures listed in CAA section 108(f) 

and relevant measures adopted in other 

nonattainment areas in the country, and 

determined that there was no 

combinations of reasonable measures 

that would advance attainment of the 

1-hour ozone standard in the South 

Coast. See 2012 AQMP, appendix VII 

and appendix IV–C. Based on our 

review of appendix IV–C of the 2012 

AQMP, we agree with the conclusion in 

the 2012 AQMP that the TCMs being 

implemented in the South Coast are 

inclusive of all TCM RACM for the area. 

As to the mobile source component of 

the RACM demonstration, in 2007, 

CARB adopted the ‘‘California Air 

Resources Board’s Proposed State 

Strategy for California’s 2007 State 

Implementation Plan’’ (‘‘2007 State 

Strategy’’) through which CARB 

identified and committed to propose 

new defined measures for on-road and 

off-road sources and the fuels that 

power them. 

Given the need for significant 

emissions reductions in California 

nonattainment areas, CARB has been a 

leader in the development and adoption 

of stringent mobile source control 

measures nationwide and has unique 

authority under CAA section 209 

(subject to a waiver or authorization by 

EPA) to adopt and implement new 

emission standards for many categories 

of on-road vehicles and engines and 

new and in-use off-road vehicles and 

engines. We have also noted that many 

if not most of these particular measures 

are being proposed for adoption for the 

first time anywhere in the nation. Like 

the 2007 AQMP, the 2012 AQMP relies 

on the defined measures adopted by 

CARB in the 2007 State Strategy 

approved by EPA in 2012, and we agree 

with the 2012 AQMP’s conclusion that 

CARB’s mobile source program, 

approved as RACM in connection with 

the 2007 AQMP, continues to be RACM 

as it expands and further reduces 

emissions. 

Therefore, for the reasons discussed 

above, we conclude that the 2012 

AQMP provides for RACM for ozone 

precursor emissions from stationary, 

transportation, and mobile sources in 

the South Coast. 

c. 2012 AQMP Aggregate Emissions 

Reductions Commitments 

As described in the previous section 

of this document, through adoption of 

the 2012 AQMP, the SCAQMD has 

committed to achieve specific aggregate 

emissions reductions from VOC and 

NOX sources in the South Coast area. 

Specifically, the SCAQMD has 

committed to develop, adopt, submit 

and implement measures that will 

achieve the following additional 

emissions reductions by January 1, 

2022: 5.8 tpd of VOC and 10.7 tpd of 

NOX. The SCAQMD expects to meet its 

emissions reductions commitments for 

VOC and NOX through implementation 

of the 15 measures in table 5, and 

through implementation of the Surplus 

Off-road Option for NOX (SOON) 

provision for construction/industrial 

equipment, but reserves the right to 

substitute measures as described in the 

previous section of this document.24

CARB has made no new aggregate 

emissions reduction commitment for the 

purposes of demonstrating attainment of 

the 1-hour ozone standard by December 

31, 2022 in the South Coast, but the 

2012 AQMP estimates that CARB’s 

existing, EPA-approved aggregate 

emissions reduction commitment under 

the 2007 AQMP will provide 7 tpd of 

VOC and 24 tpd of NOX reductions by 

2022. Considered together, the 

SCAQMD’s new aggregate emissions 

reductions commitment and CARB’s 


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25CAA section 182(e)(5) specifically allows EPA 

to approve an attainment demonstration that relies 

on reductions from new technologies. This 

provision is separate from the requirement in CAA 

section 172(c)(6) for enforceable emissions 

limitations under which enforceable commitments 

are considered. As a result, reductions attributed in 

the attainment demonstration to new technologies 

are not considered part of the State’s enforceable 

commitments for purposes of determining the 

percentage of reductions needed for attainment that 

remain as commitments. 

existing aggregate emissions reductions 

commitment under the 2007 AQMP 

amount to 13 tpd of VOC and 35 tpd of 

NOX for the purposes of 1-hour 

attainment in the South Coast by 

December 31, 2022. 

EPA believes that, with respect to the 

2012 AQMP 1-hour ozone attainment 

demonstration, circumstances warrant 

the consideration of enforceable 

commitments as part of the attainment 

demonstration for the South Coast. As 

shown in table 4 above, the majority of 

the VOC reductions and a substantial 

portion of NOX emissions reductions 

needed to demonstrate attainment in the 

South Coast come from SCAQMD 

regulations that were adopted prior to 

June 2012, and CARB regulations that 

were adopted prior to August 2011, i.e., 

baseline measures that have been or will 

be approved into the SIP (or issued 

waivers or authorizations) prior to a 

final approval of the attainment 

demonstration. As a result of these State 

and District efforts, most sources in the 

South Coast nonattainment area are 

currently subject to stringent rules 

adopted and approved by EPA (or for 

which EPA has issued waivers or 

authorization in the case of CARB 

regulations) prior to the development of 

the 2012 AQMP, leaving few 

opportunities (and generally more 

technologically and economically 

challenging ones) to further reduce 

emissions. 

In the 2012 AQMP, the SCAQMD 

identified potential control measures 

that could provide many of the 

additional emissions reductions needed 

for attainment. See 2012 1-hour ozone 

attainment demonstration, appendix 

VII, section 4. However, the timeline 

needed to develop, adopt, and 

implement these measures went beyond 

the February 2013 submittal date of the 

South Coast 2012 1-hour ozone 

attainment demonstration. These 

circumstances warrant the SCAQMD’s 

and CARB’s reliance on enforceable 

commitments as part of the attainment 

demonstration in the South Coast 2012 

1-hour ozone attainment demonstration. 

Given the State’s demonstrated need 

for reliance on enforceable 

commitments, we now consider the 

three factors EPA uses to determine 

whether the use of enforceable 

commitments in lieu of adopted 

measures to meet a CAA planning 

requirements is approvable: (1) Does the 

commitment address a limited portion 

of the statutorily-required program; (2) 

is the state capable of fulfilling its 

commitment; and (3) is the commitment 

for a reasonable and appropriate period 

of time. 

For the first factor, we look to see if 

the commitment addresses a limited 

portion of a statutory requirement, such 

as the amount of emissions reductions 

needed to demonstrate attainment in a 

nonattainment area. For this calculation, 

reductions assigned to the new 

technology provision (CAA section 

182(e)(5)) are not counted as 

commitments.25

As shown in table 4 above, the 

remaining portions of the emission 

reductions needed to demonstrate 

attainment of the 1-hour ozone standard 

in the South Coast nonattainment area 

(i.e., of the State’s total enforceable 

commitments), after accounting for 

baseline measures and emissions 

reduction commitments assigned to 

CAA section 182(e)(5) measures, 

amount to 13 tpd VOC and 35 tpd NOX.

When compared to the total reductions 

needed to demonstrate attainment (not 

including the CAA section 182(e)(5) 

reductions in the attainment 

demonstration), the remaining portion 

of the enforceable commitments 

represents approximately 7 percent of 

the needed VOC reductions and 

approximately 6 percent of the needed 

NOX reductions. These percentage 

reductions are consistent with other 

SIPs for which EPA has approved 

enforceable commitments. See our 

approval of the SJV PM10 Plan at 69 FR 

30005 (May 26, 2004), the SJV 1-hour 

ozone plan at 75 FR 10420 (March 8, 

2010), the Houston-Galveston 1-hour 

ozone plan at 66 FR 57160 (November 

14, 2001), approval of the SJV 2007 

PM2.5 SIP at 76 FR 41338 (November 9, 

2011), and approval of the South Coast 

PM2.5 SIP at 76 FR 41562 (November 9, 

2011). We believe the State’s 

commitment meets the first factor 

because it addresses a limited 

proportion of the required emission 

reductions. 

For the second factor, we consider 

whether the SCAQMD and CARB are 

capable of fulfilling their commitments. 

The 2012 AQMP includes a specific list 

of regulatory initiatives from which 

emissions reductions are estimated to 

fulfill that agency’s aggregate emissions 

reduction commitment. See table VII–4– 

2, and control measure OFFRD–01 (i.e., 

extension of the SOON provision) in 

table VII–4–4 of appendix VII of the 

2012 AQMP. With respect to CARB’s 

existing aggregate commitment from the 

2007 AQMP, table VII–4–1 of the 2012 

AQMP lists the types of measures 

included in the 2007 AQMP that the 

State of California could implement to 

meet CARB’s existing 2020 aggregate 

commitment and thereby provide the 

planned emissions reductions for 1-hour 

ozone attainment purposes in 2022. 

Given the State’s and SCAQMD’s efforts 

to date to reduce emissions and the 

proposed stationary and mobile source 

strategies found in the 2012 AQMP, we 

believe that the State and SCAQMD are 

capable of fulfilling their aggregate 

emissions reductions commitments. 

For the third and last factor, we 

consider whether the commitment is for 

a reasonable and appropriate period of 

time. First, we note SCAQMD’s 

commitment is to achieve the specified 

aggregate emission reductions by 

January 1, 2022 (see Wallerstein Letter), 

for the purpose of providing for 

attainment of the 1-hour ozone standard 

by December 31, 2022, an attainment 

date that we are proposing to approve 

herein. Second, to meet the aggregate 

reduction commitment by January 1, 

2022, SCAQMD is relying on emissions 

reductions from the SOON program. 

Reductions from the SOON program 

involve accelerating fleet turnover of 

off-road diesel engines through 

equipment replacement and engine 

repowers that in turn rely on available 

funds. The SCAQMD’s expectation of 

emissions reductions from the SOON 

program by January 1, 2022 is based on 

the reasonable assumption of continued 

funding at current levels to achieve 

similar annual reductions in the 

emissions as have been achieved over 

the past four years. As such, we find 

that SCAQMD’s aggregate emissions 

reduction commitment is for a 

reasonable and appropriate period of 

time. CARB’s emissions reduction 

commitment from the 2007 AQMP is for 

year 2020, and so long as the 

commitment is fulfilled by January 1, 

2022, it will provide the necessary 

reductions to attain the 1-hour ozone 

standard in the South Coast by 

December 31, 2022. Thus, SCAQMD’s 

new commitment and CARB’s existing 

commitment are for a reasonable and 

appropriate period of time. 

d. CAA Section 182(e)(5) New or 

Improved Technology Measures 

For ozone nonattainment areas 

classified as extreme, the CAA 

recognizes that an attainment 

demonstration may need to rely to a 

certain extent on new or evolving 

technologies (referred to herein as ‘‘new 


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technology’’ measures), given the 

relatively long time between developing 

the initial plan and attaining the 

standard and the degree of emissions 

reductions needed to attain. To address 

these needs, CAA section 182(e)(5) 

authorizes EPA to approve provisions in 

an extreme area plan which ‘‘anticipate 

development of new control techniques 

or improvement of existing control 

technologies,’’ and to approve an 

attainment demonstration based on such 

provisions, if the State demonstrates 

that: (1) Such provisions are not 

necessary to achieve the incremental 

emission reductions required during the 

first 10 years after November 15, 1990; 

and (2) the State has submitted 

enforceable commitments to develop 

and adopt contingency measures to be 

implemented if the anticipated 

technologies do not achieve the planned 

reductions. CAA 182(e)(5). The State 

must submit these contingency 

measures to EPA no later than three 

years before proposed implementation 

of these long-term measures, and the 

contingency measures must be 

‘‘adequate to produce emissions 

reductions sufficient, in conjunction 

with other approved plan provisions, to 

achieve the periodic emissions 

reductions required by [CAA sections 

182(b)(1) or (c)(2)] and attainment by the 

applicable dates.’’ Id. 

The General Preamble further 

provides that the new technology 

measures contemplated by section 

182(e)(5) may include those that 

anticipate future technological 

developments as well as those that 

require complex analyses, decision 

making and coordination among a 

number of government agencies. See 

General Preamble at 13524. An 

attainment demonstration that relies on 

long-term new technology measures 

under section 182(e)(5) must identify 

any such measures and contain a 

schedule outlining the steps leading to 

final development and adoption of the 

measures. Id. 

SCAQMD and CARB have 

demonstrated a clear need for emissions 

reductions from new and improved 

control technologies to reduce air 

pollution in the South Coast. As shown 

in table 4, above, baseline measures, and 

enforceable commitments provide the 

majority, but not all, of the emissions 

reductions needed by 2022 to attain the 

emissions target for 1-hour ozone 

attainment in the South Coast of 410 tpd 

of VOC and 150 tpd of NOX. 

To cover the difference, which 

amounts to 17 tpd of VOC and 150 tpd 

of NOX, the 2012 AQMP includes 10 

measures to reduce mobile source 

emissions for 1-hour ozone and 1997 

8-hour ozone planning purposes and 

seven additional measures to accelerate 

the development and deployment of 

near-zero and zero-emission technology 

for goods movement related sources and 

off-road equipment to achieve 

additional emissions reductions over 

the longer-term for 2008 8-hour ozone 

planning purposes as well. These ‘‘new 

technology’’ measures are intended to 

provide the emissions reductions 

necessary to attain the 1-hour ozone 

standard and also represent the updated 

‘‘new technology’’ provisions for 

attainment of the 1997 8-hour ozone 

standard in the South Coast. The ‘‘new 

technology’’ measures are identical for 

both the 1-hour ozone and 1997 8-hour 

ozone standards. The differences in the 

new technology provisions between the 

1-hour ozone and 1997 8-hour ozone 

attainment demonstrations lie in the 

extent to which the attainment 

demonstrations rely on such measures, 

and the timing. The emissions 

reductions that are needed from new 

technology measures to demonstrate 

attainment of the 1-hour ozone standard 

in the South Coast are 17 tpd of VOC 

and 150 tpd of NOX by January 1, 2022. 

The corresponding emissions reductions 

and timing from new technology 

measures for 1997 8-hour ozone 

attainment purposes is 40 tpd of VOC 

and 241 tpd of NOX by January 1, 2023. 

Table 6 below lists the 2012 AQMP’s 

new technology measures along with a 

brief summary of each measure. See 

2012 AQMP, appendix IV–B for a 

detailed description of the measures. In 

support of these measures, CARB 

adopted a commitment to ‘‘develop, 

adopt, and submit contingency 

measures by 2019 if advanced 

technology measures do not achieve 

planned reductions as required by 

section 182(e)(5)(B).’’ CARB Resolution 

13–3, page 9. 

TABLE 6—SCAQMD AND CARB NEW TECHNOLOGY MEASURES IN 2012 AQMP 

2012 AQMP 

measure identifier Title Description 

ONRD–01 ............. Accelerated Penetration of Partial 

Zero-Emission and Zero Emission Vehicles.

This measure continues implementation of CARB’s Clean Vehicle Rebate Project 

(CVRP) through 2023 with a minimum number of 1,000 vehicles per year to be 

incentivized through the CVRP, which provides individual vehicle incentives of up to 

certain amounts (e.g., $2,500 for full zero-emission vehicles) for clean vehicles. 

ONRD–02 ............. Accelerated Retirement of Older 

Light-Duty and Medium Duty 

Vehicles.

This measure calls for retirement of, at a minimum, 2,000 light and medium-duty vehicles per year to 2023, and gives first priority to pre-1992 model year vehicles identified as high emitter and that are off-cycle to California’s Smog Check Program. Incentives are up to $2,500 per vehicle which could include a replacement voucher 

under CARB’s Enhanced Fleet Modernization Program. 

ONRD–03 ............. Accelerated Penetration of Partial 

Zero-Emission and Zero Emission Light-Heavy- and MediumHeavy-Duty Vehicles.

This measure seeks additional emissions reductions through the early introduction of 

electric hybrid vehicles and continues the state hybrid truck and bus voucher incentive project (HVIP). Incentives of up to $25,000 per vehicle are part of this measure. 

The measure’s goal is to fund 1,000 hybrid and zero-emission vehicles each year to 

2023. 

ONRD–04 ............. Accelerated Retirement of Older 

On-Road Heavy-Duty Vehicles.

This measure seeks additional emissions reductions from older, pre-2010 heavy-duty 

vehicles beyond the emission reductions targeted in CARB’s Truck and Bus Regulation. A significant number of heavy-duty trucks have been replaced through Proposition 1B Goods Movement Emission Reduction Program funding, the Carl Moyer 

Program, and other local incentives programs. This measure continues these programs through 2023. 

ONRD–05 ............. Further Emission Reductions from 

Heavy-Duty Vehicles Serving 

Near-Dock Railyards.

This measure calls for CARB to adopt a regulation or other enforceable mechanism to 

further reduce emissions from near-dock railyard drayage trucks. The regulation or 

other enforcement mechanism would require, by 2020, all containers transported 

between the marine ports and the near-dock railyards to use zero-emission technologies. 


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26We interpret CARB’s contingency measure 

commitment to be for January 1, 2019 based on the 

statutory requirement for such measures to be 

submitted (‘‘no later than 3 years before proposed 

implementation of the [advanced control 

technologies measures]’’), CAA section 182(e)(5), 

and the implementation date for implementation of 

the advanced control technologies measures in the 

2012 AQMP by January 1, 2022. 27We also note that the State has committed to 

meet annually with EPA and to provide annual 

updates on the status of the 182(e)(5) commitments. 

See letter from James Goldstene, Executive Officer, 

CARB to Jared Blumenfeld, Regional Administrator, 

EPA Region 9, dated August 29, 2011 and letter 

from Richard Corey, Executive Officer, CARB to 

Jared Blumenfeld, Regional Administrator, EPA 

Region 9, dated March 6, 2014. 

TABLE 6—SCAQMD AND CARB NEW TECHNOLOGY MEASURES IN 2012 AQMP—Continued 

2012 AQMP 

measure identifier Title Description 

OFFRD–01 ........... Extension of the SOON Provision 

for Construction/Industrial 

Equipment.

This measure seeks to reduce emissions from older, high-emitting off-road diesel engines. Under this measure, incentive programs, such as the Carl Moyer Program 

and the SOON Provision of CARB’s Off-Road rule, would continue to be used to 

fund equipment replacement and engine repower projects. This measure would extend the current SOON program beyond 2014 to 2023. 

OFFRD–02 ........... Further Emission Reductions from 

Freight Locomotives.

This measure carries forward the freight locomotive new technology measures from 

the 2007 AQMP and calls for replacing existing locomotive engines with Tier 4 engines beginning in 2015 such that by 2023, there will be at least 95% Tier 4 locomotives operating the South Coast. 

OFFRD–03 ........... Further Emission Reductions from 

Passenger Locomotives.

Metrolink’s Board has adopted a locomotive replacement plan which includes the procurement of Tier 4 locomotive engines to replace its 30 Tier 0 locomotives over a 

three-year period. In addition, the replacement plans call for repowering the existing 

Tier 2 locomotives to Tier 4 emission levels, resulting in 100% Tier 4 locomotives by 

2023. 

OFFRD–04 ........... Further Emission Reductions from 

Ocean-Going Marine Vessels 

While at Berth.

This measure focuses on ocean-going vessels not subject to CARB’s shorepower regulation and seeks to deploy shorepower technologies for an additional 25 percent of 

the calls not subject to CARB’s shorepower regulation. 

OFFRD–05 ........... Emission Reductions from OceanGoing Marine Vessels.This measure calls for incentives to be used to maximize the early introduction and 

preferential deployment of vessels to the San Pedro Bay Ports with cleaner/new engines meeting the new Tier 2 and Tier 3 IMO NOX standards. 

ADV–01 ................ Actions for the Deployment of 

Zero and Near-Zero Emission 

On-Road Heavy-Duty Vehicles.

This measure includes two sets of actions. The first set involves the establishment of 

an optional NOX exhaust emission standard that is at least 95 percent lower than 

the current 2010 on-road exhaust emissions standard. The second set is to develop 

zero-emission technologies for heavy-duty vehicles that can be deployed in the 

2015 to 2035 timeframe. 

ADV–02 ................ Actions for the Deployment of 

Zero-Emission and Near-Zero 

Locomotives.

This measure describes actions needed to commercialize advanced zero-emission 

and near-zero emission technologies for locomotives that could be deployed in the 

2020 to 2030 timeframe. 

ADV–03 ................ Actions for the Deployment of 

Zero-Emission and Near-Zero 

Cargo Handling Equipment.

This measure describes actions to demonstrate and commercialize advanced zeroemission and near-zero emission technologies for cargo handling equipment operated at marine ports, intermodal freight facilities, and warehouse distribution centers 

that could be deployed in the 2020 to 2030 timeframe. 

ADV–04 ................ Actions for the Deployment of 

Cleaner Commercial Harbor 

Craft.

This measure describes actions needed to commercialize advanced engine control 

technologies and hybrid systems for commercial harbor craft that could be deployed 

in the 2020 to 2030 timeframe. 

ADV–05 ................ Actions for Deployment of Cleaner 

Ocean-Going Marine Vessels.

This measure describes the actions needed to deploy retrofit technologies on existing 

Category 3 marine engines to achieve Tier 3 marine engine emissions standards. 

ADV–06 ................ Actions for the Deployment of 

Cleaner Off-Road Equipment.

This measure describes the actions needed to commercialize advanced zero-emission 

and near-zero emission technologies of off-road equipment that could be deployed 

in the 2020 to 2030 timeframe. 

ADV–07 ................ Actions for the Deployment of 

Cleaner Aircraft Engines.

This measure describes the actions needed to develop, demonstrate, and commercialize advanced technologies, procedures, and sustainable alternative jet fuels that 

could be deployed in the 2020 to 2030 timeframe. 

We have evaluated the reliance on the 

new technology provision of section 

182(e)(5) in the 2012 AQMP and have 

found it to be acceptable. First, the SIP 

call to which the 2012 AQMP responds 

is for an attainment demonstration plan 

for an area classified as ‘‘extreme’’ for 

the 1-hour ozone standard. As such, the 

attainment demonstration can rely on 

the new technology provision under 

CAA section 182(e)(5) if attainment 

cannot be demonstrated through 

implementation of RACM and 

enforceable commitments and if the 

specific criteria and requirements of 

section 182(e)(5) are met. As noted 

above, attainment by meeting the 

emissions targets for the 1-hour ozone 

standard in the South Coast (410 tpd of 

VOC and 150 tpd of NOX) cannot be met 

through RACM and enforceable 

commitments. Second, with respect to 

the specific criteria and requirements, 

we find the 2012 AQMP’s reliance on 

new technologies to be acceptable 

because: 

• The 2012 AQMP relies on new 

technology measures for reductions 

from a base year of 2008 to an 

attainment year of 2022, a period of 14 

years, and thus does not rely on new 

technologies to achieve incremental 

emission reductions required during the 

first 10 years of the plan; and 

• CARB has submitted an enforceable 

commitment to develop, adopt, and 

submit contingency measures by 2019 26

(three years before the 1-hour ozone 

attainment year) to be implemented if 

the anticipated technologies do not 

achieve the planned reductions.27

In addition, we note the progress to date 

that has been made toward 

implementing the new technology 

measures. For example, CARB reports 

that, in January 2012, CARB adopted the 

Advanced Clean Cars Program, which 

combines the control of smog, soot 

causing pollutants and greenhouse gas 

emissions into a single coordinated 


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package of requirements for model years 

2015 through 2025. In 2013, the 

California Legislature extended to 2023 

two successful incentive programs, the 

Carl Moyer Program and the Air Quality 

Improvement Program, that otherwise 

would have sunset in 2014 and 2015, 

and provided nearly $65 million in 

additional funds. In December 2013, 

CARB adopted the new optional lowNOX standards for on-road heavy-duty 

engines that are one of the actions called 

for in the 2012 AQMP’s new technology 

measure ADV–01, listed above in table 

6. 

Thus, based on the above discussion 

and evaluation, we find that the reliance 

on new technology measures as part of 

the attainment demonstration for the 1- 

hour ozone standard in the 2012 AQMP 

satisfies the requirements of CAA 

section 182(e)(5). As such, we are 

proposing to approve the new 

technology measures summarized in 

table 6 and further described in the 2012 

AQMP, appendix IV–B, for 1-hour 

ozone attainment demonstration 

purposes and as an update to the new 

technology provision in the 2007 AQMP 

for the 1997 8-hour ozone standard. 

3. Applicable Attainment Date 

As noted previously, in our final SIP 

call, we indicated that the applicable 

attainment date for the 1-hour ozone 

standard in the South Coast is as 

expeditiously as practicable, but no later 

than 5 years from the effective date of 

the final SIP call (i.e., February 6, 2018) 

but that EPA is authorized to extend the 

applicable attainment date for a period 

no greater than 10 years from the 

effective date of the SIP call (i.e., 

February 6, 2023) if appropriate given 

the severity of nonattainment and the 

availability and feasibility of pollution 

control measures. 

The 2012 AQMP demonstrates 

attainment of the 1-hour ozone standard 

by December 31, 2022. To evaluate 

whether to approve an attainment date 

of December 31, 2022 for the 1-hour 

ozone standard in the South Coast, we 

reviewed the severity of nonattainment 

and the availability and feasibility of 

pollution control measures. 

First, despite significant progress over 

the years, for urban areas nationwide, 

the South Coast nonattainment area has 

both the highest 1-hour ozone design 

value concentration and the highest 

annual maximum ozone concentrations 

in the United States. For instance, while 

the 1-hour design value has decreased 

from over 0.30 ppm in 1990 to less than 

0.15 ppm in 2011 (see figure VII–2–2 in 

appendix VII of the 2012 AQMP), 

maximum ozone concentrations still are 

significantly higher than other 

metropolitan areas of the United States 

(see figures VII–2–3 and VII–2–4 in 

appendix VII) and remain over 20% 

higher than the standard. The 1-hour 

ozone problem in the South Coast is 

complex, the design value monitor has 

shifted over time, and the problem is 

compounded by the topographical and 

meteorological conditions for the area 

that are very conducive to the formation 

and concentration of ozone. 2012 

AQMP, appendix VII, section 5. 

As discussed in the section of this 

document on control strategies and 

RACM, the South Coast nonattainment 

area needs significant reductions in 

VOC and NOX to demonstrate 

attainment, on the order of 31 percent 

for VOC and 80 percent for NOX from 

2008 base year emissions. EPA believes 

that further reduction of these 

pollutants is challenging, because the 

State and local air pollution regulations 

already in place include most of the 

readily available VOC and NOX control 

measures. Moreover, attainment in the 

South Coast nonattainment area must 

also mitigate the emissions increases 

associated with the projected increases 

in population and emissions levels for 

this high growth area. 

The SCAQMD has a long history of 

adopting new measures and revising 

existing measures that provide 

emissions reductions of VOC and to a 

lesser extent, NOX. These measures 

provide ongoing reductions that 

contribute towards attainment of the 1- 

hour ozone standard. The SCAQMD’s 

VOC reductions are achieved primarily 

from rules governing the petroleum 

industry, as well as consumer products 

rules at both the State and local level. 

These types of control measures present 

special implementation challenges (e.g., 

the large number of individuals subject 

to regulation and the difficulty of 

applying conventional technological 

control solutions). NOX reductions come 

largely from SCAQMD rules for fuel 

combustion sources, NOX RECLAIM, 

and from CARB’s mobile source rules. 

As provided above, EPA agrees that 

the implementation schedule for 

enhanced stationary source controls is 

expeditious, taking into account the 

time necessary for purchase and 

installation of the required control 

technologies. We believe that it is not 

feasible at this time to accelerate the 

emission reduction schedule for the 

state and federal mobile source 

requirements, which set aggressive 

compliance dates for new emission 

standards and which must rely on fleet 

turnover over the years to deliver the 

ultimate emission reductions. In 

addition, the State has adopted 

standards for many categories of on-road 

and off-road vehicles and engines, and 

gasoline and diesel fuels, and is relying 

on existing, approved commitments to 

continue developing rules for Smog 

Check Improvements, Expanded 

Passenger Vehicle Retirement Program, 

Cleaner Main Ship Engines and Fuel, 

Cleaner Line-Haul Locomotives, and 

Off-Road Recreational Vehicle 

Equipment. EPA believes that the 

SCAQMD and CARB are implementing 

these rules and programs as 

expeditiously as practicable. EPA also 

expects that SCAQMD and CARB will 

continue to investigate opportunities to 

accelerate progress as new control 

opportunities arise, and that the 

agencies will promptly adopt and 

expeditiously implement any new 

measures found to be feasible in the 

future. For these reasons and also the 

need to conduct significant public 

outreach if applicable control 

approaches are to be effective, EPA 

agrees with the SCAQMD and CARB 

that a December 31, 2022 attainment 

date for the South Coast for the 1-hour 

ozone standard is as expeditious as 

practicable. 

4. Air Quality Modeling for the South 

Coast 2012 1-Hour Ozone Attainment 

Demonstration 

In this section of the document, we 

discuss the applicable statutory and 

regulatory requirements for modeled 

attainment demonstrations, EPA 

guidance on air quality modeling for 

ozone standards, the air quality 

modeling analysis supporting the 

attainment demonstration in the State’s 

submittal, and our evaluation of these 

modeling analyses as part of the 

attainment demonstration SIP. 

a. CAA and Regulatory Requirements for 

1-Hour Ozone Air Quality Modeling and 

EPA Guidance 

For any ozone nonattainment area 

classified as serious or above, section 

182(c)(2)(A) of the CAA specifically 

requires the State to submit a modeled 

attainment demonstration based on a 

photochemical grid modeling evaluation 

or any other analytical method 

determined by the Administrator to be 

at least as effective as photochemical 

modeling. In addition, 40 CFR section 

51.112 requires that attainment must be 

demonstrated using applicable air 

quality models, data bases, and other 

requirements specified in Appendix W 

to 40 CFR part 51, as interpreted in EPA 

guidance. See, e.g., Guideline for 

Regulatory Application of the Urban 

Airshed Model, EPA–450/4–91–013 

(July 1991); ‘‘Guidance on Use of 

Modeled Results to Demonstrate 

Attainment of the Ozone NAAQS,’’ 


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28Memorandum to Docket EPA–R09–OAR–2014– 

0185 from Carol Bohnenkamp, Air Quality Analysis 

Office, EPA Region 9, ‘‘Review of the Modeling for 

the Attainment Demonstration for the Proposed 

Rulemaking Action on the South Coast 2012 AQMP 

for the One Hour Ozone Standard’’, dated May 1, 

2014. 

29The national 1-hour ozone standard is 0.12 

ppm. Values of 124 ppb or less are not considered 

exceedances of the standard. 

EPA–454/B–95–007 (June 1996); 

‘‘Guidance for the 1-hour Ozone 

Nonattainment Areas that Rely on 

Weight-of-Evidence for Attainment 

Demonstrations, Mid-Course Review 

Guidance’’ (March 28, 2002); ‘‘Guidance 

for Improving Weight-of-Evidence 

Through Identification of Additional 

Emission Reduction Not Modeled (Nov 

1999); ‘‘Guidance on the Use of Models 

and Other Analyses for Air Quality 

Goals in Attainment Demonstrations for 

Ozone, PM2.5, and Regional Haze,’’ April 

2007. These guidance documents 

describe the criteria that an air quality 

model and its application should meet 

to qualify for use in an ozone attainment 

demonstration. For more detail on 

EPA’s evaluation of the modeling in the 

South Coast 1-hour ozone attainment 

demonstration, see the ‘‘Modeling and 

Other Analyses Attainment 

Demonstration’’ memorandum in the 

docket for today’s proposal.28 The 

modeling document in the docket also 

includes a complete list of applicable 

modeling guidance documents. These 

documents describe the components of 

the attainment demonstration, explain 

how the modeling and other analyses 

should be conducted, and provide 

overall guidance on the technical 

analyses for attainment demonstrations. 

As with any predictive tool, inherent 

uncertainties are associated with 

photochemical grid modeling. EPA’s 

guidance recognizes these limitations 

and provides recommended approaches 

for considering other analytical 

evidence to help assess whether 

attainment of the NAAQS is likely. This 

process is called a weight of evidence 

(WOE) analysis. EPA’s modeling 

guidance (updated in 1996, 1999, and 

2002) discusses various WOE analyses. 

This guidance recommends that all 

attainment demonstrations include 

supplemental analyses beyond the 

recommended modeling. These 

supplemental analyses provide 

additional information such as data 

analyses, and emissions and air quality 

trends, which would help strengthen 

the conclusion based on the 

photochemical grid modeling. 

b. 1-Hour Attainment Demonstration 

Modeling and Weight of Evidence 

i. Modeling Approaches for the 

SCAQMD Attainment Demonstration 

a. Photochemical Grid Model. The 

model selected for the 20121-hour 

ozone attainment demonstration was 

developed using the U.S. EPA 

supported Community Multiscale Air 

Quality (CMAQ) (version 4.7) air quality 

modeling platform with Statewide Air 

Pollution Research Center-99 

(SAPRC99) chemistry, and the Weather 

Research and Forecasting (WRF) model 

(version 3.3) meteorological fields. The 

modeling system (including the 

photochemical model, meteorological 

inputs, and chemical mechanism) is 

consistent with the previous advice of 

outside peer reviewers. CMAQ is a stateof-the-art air quality model that can 

simulate ozone and PM2.5

concentrations together in a ‘‘oneatmosphere’’ approach for attainment 

demonstrations. 

b. Episode Selection. The attainment 

demonstration modeling focuses on 92 

days of ozone air quality observed 

during June through August of the base 

year 2008. Overall, the 92 day period 

provides a robust description of the 

2008 ozone meteorological season. 

During this period, seven well defined 

multi-day ozone episodes occurred in 

the Basin with 16 days having daily 1- 

hour maximum ozone concentrations of 

125 ppb or higher at the site with the 

maximum number of exceedances. 

When assessed for a normalized 

meteorological ozone episode potential 

using a regression based weighting 

covering 30 years of data (1998–2010), 

the June 18–22, 2008 period was ranked 

in the 99th percentile. This episode 

contained the top four daily ozone 

maximum concentrations for 2008 in 

the South Coast and was selected as the 

focus of the attainment demonstration. 

c. Model Performance. Model 

performance was evaluated in three 

zones in the South Coast Basin: The San 

Fernando Valley; the eastern San 

Gabriel, Riverside and San Bernardino 

Valleys; and Los Angeles and Orange 

County. Normalized Gross Bias, 

Normalized Gross Error, and Peak 

Prediction Accuracy were determined 

for each area. Although not a 

requirement for determining acceptable 

model performance, the performance 

statistics were compared to the EPA 

performance goals presented in 

guidance documents. The performance 

goals for Normalized Gross Error and 

Peak Prediction Accuracy were met in 

the eastern San Gabriel, Riverside and 

San Bernardino Valleys. The statistic for 

bias (Normalized Gross Bias) tends to be 

negative, indicating that the model 

tends to slightly under-predict ozone. 

Both June 18th and June 20th failed to 

meet the model acceptance criteria for 

the unpaired peak analysis. As a result, 

the attainment demonstration focused 

on June 19th and 21st, days with 

observed peak concentrations that 

closely matched the design values. 

Based on their analysis, SCAQMD 

concludes and EPA agrees that model 

performance is acceptable for this 

application. 

ii. Results of SCAQMD Modeling 

Photochemical model simulations 

were conducted for the base year 2008 

emissions and future-year 2022 baseline 

and controlled emissions. The 1-hour 

ozone attainment demonstration was 

based on the deterministic approach 

outlined in the ‘‘Guidance on Use of 

Modeled Results to Demonstrate 

Attainment of the Ozone NAAQS,’’ 

EPA–454/B–95–007 (June 1996). In 

addition, the weight of evidence 

analysis uses the model in a relative 

sense, using the relative response factor 

(RRF) technique described in the 

‘‘Guidance on the Use of Models and 

Other Analyses for Air Quality Goals in 

Attainment Demonstrations for Ozone, 

PM2.5, and Regional Haze,’’ April 2007. 

a. Modeled Attainment. The model 

predicted a maximum 1-hour ozone 

concentration for 2022 of 125 parts per 

billion (ppb) on June 19th at the 

Pasadena monitor.29 All other predicted 

concentrations during the five-day 

episode are projected to be below 124 

ppb. The results of the attainment 

demonstration for 2022 indicate that, 

allowing for one day per year above the 

standard, the 1-hour ozone standard 

would be attained by 2022 at all 

monitors with the controlled emissions 

inventory. The attainment targets (410 

tpd VOC and 150 tpd NOX) are based on 

both short-term and long-term (i.e., new 

technology) measures. With the related 

emissions reductions in place, it is 

expected that all stations in the South 

Coast ozone nonattainment area will 

meet the 1-hour ozone standard during 

the 2022 ozone season. 

b. Weight of Evidence Analysis. The 

weight of evidence analysis for the 

ozone attainment demonstration relies 

on the use of site-specific RRFs being 

applied to the 2008 weighted design 

values. The RRFs are determined from 

the future year controlled and the 2008 

base year simulations. The results of the 

RRF analysis supports the deterministic 

attainment demonstration and the level 

of emission reductions needed for 

attainment. The selection criteria for the 

episode days and the process of 

applying the RRFs to the CAMX 

modeling are discussed in more detail 

in the modeling document in the docket 

for today’s action. 


sroberts on DSK5SPTVN1PROD with PROPOSALS
29726 Federal Register / Vol. 79, No. 100 / Friday, May 23, 2014 / Proposed Rules 

c. EPA’s Evaluation of the Modeling 

Demonstration 

Our evaluation of the air quality 

modeling analyses and supporting 

information provided in the South Coast 

2012 1-hour ozone attainment 

demonstration indicate that the South 

Coast area will attain the 1-hour ozone 

standard by its December 31, 2022. In 

addition to the attainment 

demonstration provided in the South 

Coast 2012 1-hour ozone attainment 

demonstration, we have considered 

supplemental technical information, 

including ambient air quality 

monitoring data, which was not 

available at the time the attainment 

modeling was performed by SCAQMD. 

This information is discussed in more 

detail in the ‘‘Review of the Modeling 

for the Attainment Demonstration for 

the Proposed Rulemaking Action on the 

South Coast 2012 AQMP for the One 

Hour Ozone Standard’’ memorandum in 

the docket. The most recent ambient air 

quality data that we have reviewed 

indicate that the area is on track to 

attain the 1-hour ozone standard by 

December 31, 2022. The 1-hour ozone 

design value has decreased from 23.4 

expected exceedance days in 2000–2002 

(average each year) to 5.5 expected 

exceedance days in 2010–2012. The 

peak 1-hour concentration has 

decreased from 0.169 ppm in 2002 to 

0.147 ppm in 2012. 

Based on the analysis above and in 

the technical memorandum in the 

docket, EPA proposes to find that the air 

quality modeling provides an adequate 

basis for the 1-hour ozone attainment 

demonstration in the 2012 AQMP. 

III. Proposed Action and Request for 

Public Comment 

For the reasons discussed above, 

under section 110(k) of the CAA, the 

EPA is proposing to approve certain 

ozone-related portions of the 2012 

South Coast AQMP as a revision to the 

California SIP. The relevant portions of 

the 2012 AQMP that are proposed for 

approval include the updated control 

strategy for the 1997 8-hour ozone 

standard and the demonstration of 

attainment of the 1-hour ozone standard 

in the South Coast by December 31, 

2022. In so doing, we are proposing to 

approve the following commitments or 

measures upon which the 1-hour ozone 

attainment demonstration relies and 

that support update the approved 

control strategy for the 1997 8-hour 

ozone standard: 

• SCAQMD’s commitments to 

develop, adopt, submit and implement 

the measures as listed in table 5, above, 

subject to findings of infeasibility and 

measure substitution, and a 

commitment to meet aggregate 

emissions reductions targets of 5.8 tpd 

of VOC and 10.7 tpd of NOX by January 

1, 2022; 

• The new technology measures 

listed in table 6, above to achieve 

emissions reductions of 17 tpd of VOC 

and 150 tpd of NOX; in the South Coast 

by January 1, 2022; and 

• CARB’s commitment to submit 

contingency measures by January 1, 

2019 as necessary to ensure that the 

emissions reductions from new 

technology measures are achieved. 

In proposing approval, EPA finds that 

an attainment date of December 31, 

2022 is appropriate in light of the 

severity of the 1-hour ozone problem in 

the South Coast and given the extent to 

which emissions sources in the South 

Coast have already been controlled and 

the difficulty of developing regulations 

and controlling additional emissions. 

EPA also finds that the South Coast 1- 

hour ozone attainment demonstration is 

based on reasonable estimates and 

forecasts of ozone precursor emissions 

and appropriate photochemical 

modeling techniques and assumptions 

and an acceptable control strategy. 

We are taking public comments for 

thirty days following the publication of 

this proposed rule in the Federal 

Register. We will take all comments into 

consideration in our final rule. 

IV. Statutory and Executive Order 

Reviews 

Under the CAA, the Administrator is 

required to approve a SIP submittal that 

complies with the provisions of the 

Actand applicable Federal regulations. 

42 U.S.C. 7410(k); 40 CFR 52.02(a). 

Thus, in reviewing SIP submissions, 

EPA’s role is to approve state choices, 

provided that they meet the criteria of 

the CAA. Accordingly, this proposed 

action merely approves a state plan as 

meeting Federal requirements and does 

not impose additional requirements 

beyond those imposed by state law. For 

that reason, this proposed action: 

• Is not a ‘‘significant regulatory 

action’’ subject to review by the Office 

of Management and Budget under 

Executive Order 12866 (58 FR 51735, 

October 4, 1993); 

• Does not impose an information 

collection burden under the provisions 

of the Paperwork Reduction Act (44 

U.S.C. 3501 et seq.); 

• 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.); 

• 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); 

• Does not have Federalism 

implications as specified in Executive 

Order 13132 (64 FR 43255, October 7, 

1999); 

• Is not an economically significant 

regulatory action based on health or 

safety risks subject to Executive Order 

13045 (62 FR 19885, April 23, 1997); 

• Is not a significant regulatory action 

subject to Executive Order 13211 (66 FR 

28355, May 22, 2001); 

• 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 CAA; and 

• Does not provide EPA with the 

discretionary authority to address, as 

appropriate, disproportionate human 

health or environmental effects, using 

practicable and legally permissible 

methods, under Executive Order 12898 

(59 FR 7629, February 16, 1994). 

In addition, this proposed rule does not 

have tribal implications as specified by 

Executive Order 13175 (65 FR 67249, 

November 9, 2000), because the SIP is 

not approved to apply in Indian country 

located in the State, and EPA notes that 

it will not impose substantial direct 

costs on tribal governments or preempt 

tribal law. 

List of Subjects in 40 CFR Part 52 

Environmental protection, Air 

pollution control, Incorporation by 

reference, Intergovernmental relations, 

Nitrogen oxides, Ozone, Reporting and 

recordkeeping requirements, Volatile 

organic compounds. 

Authority: 42 U.S.C. 7401 et seq. 

Dated: May 5, 2014. 

Jared Blumenfeld, 

Regional Administrator,EPA Region IX. 

[FR Doc. 2014–11510 Filed 5–22–14; 8:45 am] 

BILLING CODE 6560–50–P 

ENVIRONMENTAL PROTECTION 

AGENCY 

40 CFR Part 52 

[EPA–R06–OAR–2013–0400; FRL–9911–40– 

Region 6] 

Approval and Promulgation of 

Implementation Plans; Texas; Control 

of Air Pollution From Nitrogen 

Compounds 

AGENCY: Environmental Protection 

Agency (EPA). 

ACTION: Proposed rule. 


sroberts on DSK5SPTVN1PROD with PROPOSALS