EPA Regional Administrator, Jared Blumenfeld, signed the following direct 

final rule on January 30, 2014, and EPA is submitting it for publication in 

the Federal Register (FR). While we have taken steps to ensure the accuracy 

of this Internet version of the direct final rule, it is not the official 

version. Please refer to the official version in a forthcoming FR publication 

appearing on the Government Printing Office’s FDsys website, 

http://fdsys.gpo.gov/fdsys/search/home.action and on Regulation.gov in Docket 

Number EPA-R09-OAR-2013-0599, http://www.regulations.gov.

6560-50

ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R09-OAR-2013-0599; FRL-]

Approval and Promulgation of Implementation Plans; California 

San Francisco Bay Area and Chico Nonattainment Areas; Fine 

Particulate Matter Emissions Inventories

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

SUMMARY: EPA is taking direct final action to approve revisions 

to the California State Implementation Plan (SIP) concerning

emissions inventories for the 2006 24-hour fine particle

National Ambient Air Quality Standard (NAAQS) for the San 

Francisco Bay Area and Chico PM2.5 nonattainment areas. We are 

approving these emissions inventories under the Clean Air Act 

(CAA or the Act).

DATES: This rule is effective on [Insert date 60 days from the 

date of publication in the Federal Register] without further 

notice, unless EPA receives adverse comments by [Insert date 30 

days from the date of publication in the Federal Register]. If 
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

2

we receive such comments, we will publish a timely withdrawal in 

the Federal Register to notify the public that this direct final 

rule will not take effect.

ADDRESSES: Submit comments, identified by docket number EPAR09-OAR-2013-0599, by one of the following methods:

1. Federal eRulemaking Portal: www.regulations.gov. Follow 

the on-line instructions.

2. E-mail: steckel.andrew@epa.gov.

3. Mail or deliver: Andrew Steckel (Air-4), U.S. Environmental 

Protection Agency Region IX, 75 Hawthorne Street, San 

Francisco, CA 94105-3901. 

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 e-mail. 

www.regulations.gov 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 e-mail 

directly to EPA, your e-mail address will be automatically 
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

3

captured and included as part of the public comment. If EPA 

cannot read your comment due to technical difficulties and 

cannot contact you for clarification, EPA may not be able to 

consider your comment. Electronic files should avoid the use of 

special characters, any form of encryption, and be free of any 

defects or viruses.

Docket: Generally, documents in the docket for this action are 

available electronically at www.regulations.gov and in hard copy 

at EPA Region IX, 75 Hawthorne Street, San Francisco, California 

94105-3901. While all documents in the docket are listed at 

www.regulations.gov, some information may be publicly available 

only at the hard copy location (e.g., copyrighted material, 

large maps), and some may not be publicly available in 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.

FOR FURTHER INFORMATION CONTACT: Nancy Levin, EPA Region IX, 

(415) 972-3848, levin.nancy@epa.gov. 

SUPPLEMENTARY INFORMATION: Throughout this document, “we,” “us,”

and “our” refer to EPA.

Table of Contents 

I. Background

A. PM2.5 NAAQS
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

4

B. Designation of PM2.5 Nonattainment Areas

C. Submittal Requirements for PM2.5 Nonattainment Areas

II. Procedural Requirements for Adoption and Submittal of SIP 

Revisions

A. Submittal for the San Francisco Bay Area Nonattainment 

Area

B. Submittal for the Chico Nonattainment Area

III. Analysis of State’s Submittals

A. San Francisco Bay Area Emissions Inventory

B. Chico Emissions Inventory

IV. Final Action

V. Statutory and Executive Order Reviews

I. Background

A. PM2.5 NAAQS

Under section 109 of the CAA, EPA establishes national 

ambient air quality standards (NAAQS or "standards") for 

certain pervasive air pollutants (referred to as "criteria 

pollutants") and conducts periodic reviews of the NAAQS to 

determine whether they should be revised or whether new NAAQS 

should be established.

On July 18, 1997, EPA revised the NAAQS for particulate 

matter to add new standards for fine particles, using PM2.5

(particles less than or equal to 2.5 micrometers in 
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

5

diameter) as the indicator for the pollutant. EPA 

established primary and secondary1 annual and 24-hour 

standards for PM2.5 (62 FR 38652). The annual standard was 

set at 15.0 micrograms per cubic meter (μg/m3), based on a 

3-year average of annual mean PM2.5 concentrations, and the 

24-hour standard was set at 65 μg/m3, based on the 3-year 

average of the 98th percentile of 24-hour PM2.5

concentrations at each population-oriented monitor within an 

area.

On October 17, 2006 (71 FR 61144), EPA revised the level 

of the 24-hour PM2.5 NAAQS to 35 μg/m3, based on a 3-year 

average of the 98th percentile of 24-hour concentrations. EPA 

also retained the 1997 annual PM2.5 standard at 15.0 μg/m3 based 

on a 3-year average of annual mean PM2.5 concentrations, but 

with tighter constraints on the spatial averaging criteria.

B. Designation of PM2.5 Nonattainment Areas

Effective December 14, 2009, EPA established the initial 

air quality designations for most areas in the United States for 

the 2006 24-hour PM2.5 NAAQS. See 74 FR 58688 (November 13, 2009). 

Among the various areas designated in 2009, EPA designated the 

 

1 For a given air pollutant, "primary" national ambient air quality standards 

are those determined by EPA as requisite to protect the public health, and 

"secondary" standards are those determined by EPA as requisite to protect the 

public welfare from any known or anticipated adverse effects associated with 

the presence of such air pollutant in the ambient air. See CAA section 109(b).
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

6

San Francisco Bay Area and the Chico area in California as 

nonattainment for the 2006 24-hour PM2.5 NAAQS.2,3 The boundaries 

for these areas are described in 40 CFR 81.305.

C. Submittal Requirements for PM2.5 Nonattainment Areas

Section 172(c)(3) of the CAA requires a state with an area 

designated as nonattainment to submit for EPA approval a 

comprehensive, accurate, and current inventory of actual 

emissions for the nonattainment area. EPA’s requirements for an 

emissions inventory for the PM2.5 NAAQS are set forth in 40 CFR 

51.1008.

4,5 This direct final approval is limited to the emissions

inventories for direct PM2.5 and PM2.5 precursors submitted by the 

California Air Resources Board (CARB) for the San Francisco Bay 

Area and Chico nonattainment areas as required under section 

 

2 The San Francisco Bay Area PM2.5 nonattainment area includes southern Sonoma,

Napa, Marin, Contra Costa, San Francisco, Alameda, San Mateo, Santa Clara and

the western part of Solano counties.

3 The Chico PM2.5 nonattainment area includes the southwestern two-thirds of 

Butte County, California. Butte County lies in the central portion of 

northern California's Sacramento Valley Air Basin, which stretches from 

Sacramento County in the south to Shasta County in the north.

4 40 CFR 51.1008 (a)(2) and (b) do not apply for the Bay Area or Chico because 

they relate to requirements for attainment demonstrations and reasonable 

further progress (RFP), which were suspended for both the Bay Area (78 FR 

1760) and Chico (78 FR 55225) PM2.5 nonattainment areas on January 9, 2013 and 

September 10, 2013, respectively.

5 Although the U.S. Court of Appeals for the District of Columbia (DC Circuit) 

recently remanded this rule and directed EPA to re-promulgate it pursuant to 

subpart 4 of part D, title I of the CAA (see Natural Resources Defense 

Council v. EPA, 706 F.3d 428 (D.C. Cir. 2013)), the court’s ruling in this 

case does not affect EPA’s action on these emission inventories. Subpart 4 of 

part D, title I of the Act contains no specific provision governing emission 

inventories for PM10 or PM2.5 nonattainment areas that supersedes the general 

emission inventory requirement for all nonattainment areas in CAA section 

172(c)(3). See “State Implementation Plans; General Preamble for the 

Implementation of Title I of the Clean Air Act Amendments of 1990,” 57 FR 

13498, 13539 (April 16, 1992).
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

7

172(c)(3) of the CAA as applicable to the 2006 PM2.5 24-hour 

NAAQS. 

On January 9, 2013 (78 FR 1760), EPA finalized a 

determination that the San Francisco Bay Area nonattainment area 

had attained the 2006 24-hour PM2.5 NAAQS. On September 10, 2013

(78 FR 55225), EPA finalized a determination that the Chico 

nonattainment area had also attained the 2006 24-hour PM2.5

NAAQS. These determinations of attainment were based upon 

complete, quality-assured, and certified ambient air monitoring 

data showing that each area had monitored attainment of the 2006 

24-hour PM2.5 NAAQS based on the most-recent three years of 

monitoring data. Based on these determinations, the requirements 

for each area to submit an attainment demonstration, together 

with reasonably available control measures, a reasonable further 

progress (RFP) plan, and contingency measures for failure to 

meet RFP and attainment deadlines, are suspended for so long as 

the area continues to attain the 2006 24-hour PM2.5 NAAQS. The 

emissions inventory submittal requirement in CAA section 

172(c)(3) is not suspended by the determination of attainment, 

and the State has submitted the Chico and San Francisco Bay Area 

inventories to address the section 172(c)(3) requirement. 

II. Procedural Requirements for Adoption and Submittal of SIP 

Revisions
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

8

Sections 110(a)(1) and 110(l) of the Act require states to 

provide reasonable notice and public hearing prior to adoption 

of SIP revisions. Section 110(k)(1)(B) requires EPA to determine 

whether a SIP submittal is complete within 60 days of receipt. 

Any plan that we have not affirmatively determined to be 

complete or incomplete will become complete six months after the 

day of submittal by operation of law. A finding of completeness 

does not approve the submittal as part of the SIP nor does it 

indicate that the submittal is approvable. It does start a 12-

month clock for EPA to act on the SIP submittal. See CAA section 

110(k)(2).

A. Submittal for the San Francisco Bay Area Nonattainment 

Area

In this action, we are approving, as a revision to the 

California SIP, CARB's January 14, 2013 submittal of the 2010 

PM2.5 Emissions Inventory for the San Francisco Bay Area (Bay Area 

emissions inventory).

6 CARB’s submittal to EPA documents the 

public review process followed by San Francisco Bay Area Air 

Quality Management District (BAAQMD) and CARB in adopting the 

Bay Area emissions inventory prior to submittal to EPA as a 

 

6 CARB adopted the 2010 PM2.5 Emission Inventory for the Bay Area in 2012 and 

refers to the submittal as the “2012 PM2.5 Emission Inventory to the State 

Implementation Plan for the San Francisco Bay Area.” However, the actual 

inventory in the 2012 CARB submittal (Appendix D) is titled, “Bay Area Winter 

Emissions Inventory for Primary PM2.5 & PM Precursors: Year 2010.” For purposes 

of this action, any reference to the 2012 PM2.5 Emissions Inventory is 

equivalent to the Bay Area 2010 winter-time PM2.5 emission inventory.
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

9

revision to the SIP. The documentation provides evidence that 

reasonable notice of a public hearing was provided to the public 

and that a public hearing was conducted prior to adoption.

CARB’s submittal documents the adoption of the Bay Area 

emissions inventory by the BAAQMD Board of Directors on November 

7, 2012. The submittal also documents CARB’s December 6, 2012 

Board resolution approving the Bay Area emissions inventory.7 On 

January 14, 2013, CARB submitted the Bay Area emissions

inventory to EPA for approval as a revision to the California 

SIP.

CARB’s January 14, 2013 submittal of the Bay Area emissions

inventory became complete by operation of law on July 14, 2013. 

Based on the documentation included in CARB’s submittal, we 

find that the submittal of the Bay Area emissions inventory, as 

a SIP revision, satisfies the procedural requirements of 

sections 110(l) of the Act for revising SIPs. For further 

details, please see EPA’s December 20, 2013 Technical Support 

Document (TSD) for the Bay Area emissions inventory. 

B. Submittal for Chico Nonattainment Area

In this action, we are also approving, as a revision to the 

California SIP, CARB's November 15, 2012 submittal of a 2011 

PM2.5 emissions inventory for the Chico PM2.5 nonattainment area 

 

7 CARB Resolution 12-37, December 6, 2012.
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

10

(Chico emissions inventory).

8 CARB’s submittal documents the 

public review process followed by Butte County Air Quality 

Management District (BCAQMD) and CARB in adopting the Chico 

emissions inventory prior to submittal to EPA. The documentation 

provides evidence that reasonable notice of a public hearing was 

provided to the public and that a public hearing was conducted 

prior to adoption. CARB’s submittal documents the adoption of 

the emissions inventory by the BCAQMD Board of Directors. On 

September 27, 2012, the BCAQMD Board of Directors approved the 

emissions inventory and directed BCAQMD staff to forward the 

Chico emissions inventory to CARB, the Governor of California’s 

designee for SIP matters.9 CARB’s submittal also documents its 

October 18, 2012 Board resolution regarding the Chico emissions

inventory.10

CARB’s November 15, 2012 submittal of the Chico emissions

inventory became complete by operation of law on May 15, 2013.

Based on the documentation included in CARB’s submittal, we 

find that the submittal of the Chico emissions inventory as a 

 

8 CARB adopted the 2011 PM2.5 Emission Inventory for the Chico nonattainment 

area in 2012 and refers to it as the “2012 PM2.5 Emission Inventory Submittal 

to the State Implementation Plan for the Chico, CA/Butte County (partial) 

Planning Area.” However, the actual inventory in the CARB submittal (Appendix 

D) is titled “Chico Nonattainment Area (Partial Butte County) 2011 Daily 

Winter-Time Emissions Inventory (Base Year 2005-Grown and Controlled in Tons 

Per Day).” For purposes of this action, any reference to the 2012 PM2.5

Emissions Inventory is equivalent to the Chico 2011 winter-time PM2.5 emission 

inventory.

9 BCAQMD Revised Resolution No. 2012-12, September 27, 2012.

10 CARB Resolution 12-31, October 18, 2012.
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

11

SIP revision satisfies the procedural requirements of sections 

110(l) of the Act for revising SIPs. For further details, please 

see EPA’s December 20, 2013 TSD for the Chico emissions

inventory.

III. Analysis of State’s Submittals

Section 172(c)(3) of the CAA requires states to submit a 

comprehensive, accurate, and current inventory of actual 

emissions for each nonattainment area. EPA’s requirements for an 

emissions inventory for the PM2.5 NAAQS are set forth in 40 CFR 

51.1008. For the PM2.5 NAAQS, the pollutants to be inventoried are

PM2.5, VOC, NOx, SO2, and NH3.

11

A. San Francisco Bay Area Emissions Inventory

The Bay Area emissions inventory provides a 2010 inventory

in tons per day (tpd) winter-time emissions estimates for PM2.5

and PM2.5 precursors (i.e., nitrogen oxides (NOx), volatile 

organic compounds (VOCs),

12 ammonia (NH3), and sulfur dioxide 

(SO2)). Monitoring data for the San Francisco Bay Area 

nonattainment area indicates that high PM2.5 concentrations occur 

primarily during the winter months; therefore, the Bay Area 

 

11 Emissions Inventory Guidance for Implementation of Ozone and Particulate 

Matter National Ambient Air Quality Standards (NAAQS) and Regional Haze 

Regulations, EPA-454/R-05-001, August 2005, updated November 2005. 

http://www.epa.gov/ttn/chief/eidocs/eiguid/eiguidfinal_nov2005.pdf.

12 BAAQMD uses the term Reactive Organic Gas (ROG) rather than VOC. EPA 

formerly defined the regulated organic compounds in outdoor air as ROG. 

However, EPA later changed that terminology to “VOC,” which we use here.
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

12

emissions inventory is a winter-season inventory.13 The source 

categories include stationary sources, area sources, on-road 

mobile sources and off-road mobile sources. A summary of the Bay 

Area emissions inventory is provided in Table 1 below, and the 

detailed Bay Area emissions inventory is found in Attachment 1 

of CARB’s submittal. CARB received no public comments on this 

submittal. 

Table 1. San Francisco Bay Area Planning Area 2010 Winter 

Emissions Inventory in tons per day (tpd)

Source Category14 PM2.5 VOC NOx SO2 NH3

Industrial and 

Commercial Processes

5.5 13.7 3.0 7.1 6.2

Petroleum 

Product/Solvent 

Evaporation

0.1 69.7 0.0 0.0 0.0

Combustion Stationary 

Sources - Fireplaces

13.1 5.3 1.1 0.2 1.2

Combustion Stationary 

Sources - Wood Stoves

3.7 2.8 0.5 0.1 0.5

Combustion Stationary 

Sources - Other

7.5 6.3 54.4 17.9 1.1

 

13 November 20, 2013 email correspondence from Amir Fanai (BAAQMD) to Nancy 

Levin (EPA), “FW_ Annual v. winter inventory (with attachment).” See also

“Understanding Particulate Matter,” 2012, BAAQMD, page 75. Also see ARB Staff 

Report, “Analysis of the 2012 PM2.5 Emissions Inventory Submittal to the State 

Implementation Plan for the San Francisco Bay Area,” page 2.

14 The source categories and totals in Table 1 represent the combined totals 

from various subcategories of sources listed in the Bay Area Winter Emissions 

Inventory for Primary PM2.5 & PM Precursors: Year 2010. See Table 1 in 

Attachment 1 of the TSD. This summary also breaks out “Combustion Stationary 

Sources” into fireplaces, woodstoves, and other; and “Miscellaneous Other 

Sources” into Consumer Products (excluding pesticides) and other.
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

13

On-Road Mobile 7.3 107.4 197.6 0.9 8.7

Off-Road Mobile 4.3 39.6 90.4 2.8 0.0

Miscellaneous Other - 

Consumer Products 

(excluding pesticides) 

0.0 44.1 0.0 0.0 0.5

Miscellaneous Other -

other

7.9 5.1 0.2 0.0 19.1

TOTALSa 49 294 347 29 37

a Totals rounded consistent with submittal.

The Bay Area emissions inventory includes emissions

estimates from stationary sources, area sources, on-road mobile 

sources, and off-road mobile sources. The methodologies used to 

derive the 2010 inventory for PM2.5 are as follows:

15

 The stationary source emissions inventory is based on 

2010 data of actual emissions reported by all 

permitted facilities.

 Area-wide source emissions were calculated based on 

reported data for fuel usage, product sales, 

population, employment data, and other parameters 

covering a wide range of activities.

 The BAAQMD used residential 2005-2006 wood burning 

surveys and mass balance calculations to estimate 

emissions from fireplaces and woodstoves.16

 

15 “Understanding Particulate Matter,” 2012, BAAQMD, pages 82-87. 

http://www.baaqmd.gov/~/media/Files/Planning%20and%20Research/Plans/PM%20Plan

ning/ParticulatesMatter_Nov%207.ashx.

16 In their “Spare the Air Tonight Study, 2005-2006 Winter Wood Smoke Season 
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

14

 Commercial cooking did not include condensable 

emissions for purposes of methodological consistency, 

since methods to measure condensable emissions from 

other sources are not available.

 The on-road emissions inventory, which consists of 

mobile sources such as trucks, automobiles, buses, and

motorcycles, was prepared by CARB using EMFAC2011,17 an 

EPA-approved CARB model for on-road motor vehicle 

emissions.

 The off-road mobile source category includes aircraft, 

trains and boats, and off-road vehicles and equipment 

used for construction, farming, commercial, 

industrial, and recreational activities. Off-road 

emissions were estimated by CARB using categoryspecific methods and models, and OFFROAD2007.19

 

(2006)” the BAAQMD used probability-based sampling techniques to obtain a 

representative sample of adult population in the district. A total of 2,625 

randomly selected residents participated in a telephone survey on one of 28 

interviewing dates between November 22, 2005 and February 17, 2006. The 

methodology and protocols used are described in the following report: Spare 

the Air Tonight Study, 2005-2006 Winter Wood Smoke Season, Conducted for the 

Bay Area Air Quality Management District, 2006.

17 See 78 FR 14533 (March 6, 2013) regarding EPA approval of the latest version 

of the California EMFAC model (short for EMissionFACtor) and announcement of 

its availability. The software and detailed information on the EMFAC vehicle 

emission model can be found on the following CARB web site: 

http://www.arb.ca.gov/msei/msei.htm. 

18 See http://www.arb.ca.gov/msei/categories/htm. 

19 Email from Gabe Ruiz, CARB, to John Ungvarsky, EPA, December 17, 2013.

While BAAQMD’s “Understanding Particulate Matter” refers to a CARB 

“OFFROAD2011” model, EPA staff confirmed that CARB “did not produce an 

integrated version of the OFFROAD model for 2011 (i.e., there is no 

OFFROAD2011). Instead, off-road emissions were estimated using a suite of 
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

15

 Ship emissions were based on actual data where 

possible. Commercial boat emissions were calculated 

based on data collected from CARB’s 2004 Statewide 

Commercial Harbor Craft Survey. Aircraft emissions are 

based on actual 2010 activity data.

 Paved road emissions were estimated by CARB, based on 

their 2011 guidance and EPA’s AP-42, Fifth Edition, 

Volume 1, Chapter 13.2.1, Final Section.

20

As noted above, high PM2.5 concentrations in the San 

Francisco Bay Area nonattainment area occur primarily during the 

winter months and, therefore, the BAAQMD submitted a winter 

season inventory. The high winter concentrations are mainly due 

to meteorological factors, but also are affected by increased 

residential wood burning during the winter. In addition, cool 

weather promotes the formation of ammonium nitrate.

21 Residential 

wood burning and diesel vehicles comprise about two thirds of 

the directly emitted PM2.5 emissions. On-road motor vehicles make 

 

models that provide inventory estimates specific to different categories of 

vehicles. Many of these category-specific models were developed to support 

recent regulations including in-use off-road equipment, ocean-going vessels, 

and others. In those instances when a category-specific model was not 

created, OFFROAD2007 was used.”

20 AP-42 Fifth Edition, Volume 1, Chapter 13.2.1, Final Section, November 

2006, http://www.epa.gov/ttn/chief/ap42/ch13/final/c13s0201.pdf, and 

Understanding Particulate Matter, page 87, footnote 18. See the Technical

Support Document for today’s action for additional information on methods 

used by CARB to calculate paved road emissions.

21 “Understanding Particulate Matter,” 2012, BAAQMD, page 75.
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

16

up the largest source of NOx and VOC emissions.

EPA has reviewed the results, procedures, and methodologies 

for the Bay Area emissions inventory. The BAAQMD used standard 

procedures to develop its emissions inventory. The BAAQMD 

appropriately used seasonal emissions inventories. After 

reviewing the CARB submittal of the Bay Area emissions inventory

and supporting documentation, EPA finds the Bay Area emissions 

inventory meets the requirements of the CAA and EPA guidance 

and, therefore, we are approving it.

B. Chico Emissions Inventory

The SIP revision submitted by CARB on November 15, 2012 for 

the Chico nonattainment area provides a 2011 winter-time 

emissions inventory with emissions estimates in tpd for PM2.5 and 

PM2.5 precursors (i.e., NOx, VOCs,

22 NH3, and SO2). Monitoring data 

for the Chico nonattainment area indicates that high PM2.5

concentrations occur primarily during the winter months; 

therefore, the submitted inventory is a winter-season 

inventory.

23 The source categories include stationary sources, 

area sources, on-road mobile sources, and off-road mobile 

sources. A summary of the inventory is provided in Table 2

below, and a detailed inventory is found in Appendix D of CARB’s

 

22 BCAQMD uses the term Reactive Organic Gas (ROG) rather than VOC. EPA 

formerly defined the regulated organic compounds in outdoor air as ROG.

However, EPA later changed that terminology to “VOC.” 

23 2012 PM2.5 Emission Inventory Submittal to the State Implementation Plan for 

the Chico, CA/Butte County (partial) Planning Area, Figure 4-1. 
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

17

submittal. CARB received no public comments on this submittal. 

Table 2: Chico 2011 Daily Winter-season Emissions Inventory for 

PM2.5 and Precursors (tpd)

24

Emissions Inventory 

Category PM2.5 VOC NOx SO2 NH3

Stationary Sources25 0.81 1.69 2.13 0.07 0.07

Area Sources

Residential Wood 

Heating 2.36 3.40 0.28 0.05 0.15

All other Residential 

Heating 0.04 0.03 0.59 0.02 0.00

Agricultural 

(Managed) Burning 1.16 0.93 0.68 0.11 0.12

Construction

Fugitives 0.10 0.00 0.00 0.00 0.00

Agricultural 

Fugitives 0.19 0.32 0.00 0.00 0.58

Paved and Unpaved 

Road Dust 

(Construction 

Fugitives)

0.33 0.00 0.00 0.00 0.00

All Other Area 

Sources (General Area 

Sources)

0.08 4.34 0.00 0.00 3.61

Mobile Sources

On-Road 0.27 3.23 8.71 0.03 0.23

Off-Road 0.23 2.34 4.82 0.06 0.002

TOTALSa 5.57 16.28 17.22 0.33 4.77

a Totals may not precisely match categories because of rounding

but are consistent with submittal.

 

24 Ibid., Table 5-1.

25 Includes Fuel Combustion, Waste Disposal, Cleaning and Surface Coatings, 

Petroleum Production and Marketing, Industrial Processes, and Solvent 

Evaporation. 
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

18

For the Chico nonattainment area, the BCAQMD used a base 

year of 2005, which was the latest completed comprehensive 

inventory available.26 This base year inventory was then “grown 

and controlled”27 for 2011. For the PM2.5 NAAQS, the pollutants to 

be inventoried are PM2.5, VOC, NOx, SO2, and NH3.

28 The inventory

includes emissions estimates from stationary sources, area

sources, on-road mobile sources, and off-road mobile sources. 

The submittal also includes PM2.5 emissions in BCAQMD’s 2011 

Emissions Reduction Credit (ERC) register and Community Bank 

reserve. These potential future emissions are not included in 

the 2011 winter-time PM2.5 emissions inventory for Chico, but 

BCAQMD recognizes their potential to be emitted in the future if 

authorized to meet New Source Review requirements. 

Table 3: Chico 2011 Winter-time PM2.5 ERCs (tpd)

2011 ERC Registry (October-April) 0.30

Community Bank (October-April) 0.06

TOTAL 0.36

The stationary point source emissions inventory was

 

26 Email from Armen Kamian, BCAQMD to Nancy Levin, EPA, August 8, 2013.

27 “Grown” refers to including population growth, new roads, additional housing 

units, increased road traffic, etc. “Controlled” refers to including control 

measures. 

28 Emissions Inventory Guidance for Implementation of Ozone and Particulate 

Matter National Ambient Air Quality Standards (NAAQS) and Regional Haze 

Regulations, EPA-454/R-05-001, August 2005, updated November 2005. 

http://www.epa.gov/ttn/chief/eidocs/eiguid/eiguidfinal_nov2005.pdf.

29 Implementation Guidance for the 2006 24-Hour Fine Particle (PM2.s) National 

Ambient Air Quality Standards (NAAQS), U.S. EPA Memorandum from S. Page,
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

19

developed from information the BCAQMD has on file for permitted 

facilities. The source categories include, but are not limited 

to, most fuel combustion, waste disposal, cleaning and surface 

coating, petroleum marketing and production, and industrial 

process facilities, as well as those subject to the federal 

Title V program. For this inventory, stationary sources also 

include auto body shops, dry cleaners, and gasoline stations. 

General area sources include solvent evaporation and other 

sources for which BCAQMD followed CARB’s methodologies to 

calculate the emissions inventory estimates.

30 The BCAQMD 

developed the woodstove/fireplace emissions estimates using 

California housing data, Butte County Association of 

Governments’ growth predictions, and CARB emissions factors to 

determine the potential reductions from BCAQMD Rule 207, 

Residential Wood Combustion.31

Mobile sources include on-road and off-road emissions. Onroad mobile source emissions were estimated by CARB using the 

EMFAC2011model. Off-road emissions were estimated by CARB using 

category-specific methods and models, and OFFROAD2007.

32

 

March 2, 2012.

30 http://www.arb.ca.gov/ei/areasrc/index0.htm.

31 Memorandum, Control Profile Rule 207 Residential Wood Combustion, and 

attachment from Gail Williams, BCAQMD to Anna Komorniczak and Monique Davis, 

CARB, October 12, 2010; District Rule 207 Wood Burning Devices (Adopted 

October 25, 2001; Recodified August 22, 2002; Amended December 11, 2008).

32 December 16, 2013 email from Armen Kamian, BCAQMD to Nancy Levin, EPA

Region 9. 
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

20

Residential wood heating accounts for almost half of the winter 

directly emitted PM2.5 emissions, and mobile sources are the 

largest contributors to NOx emissions.

EPA has reviewed the results, procedures, and methodologies 

for the submitted emissions inventory. The BCAQMD used standard 

procedures to develop its emissions inventory. The BCAQMD 

appropriately used seasonal emissions inventories. After 

reviewing the CARB submittal of the Chico emissions inventory 

and supporting documentation, EPA finds the emissions inventory 

meets the requirements of the CAA and EPA guidance and, 

therefore, we are approving it. 

IV. Final Action

EPA is taking direct final action to approve the PM2.5 and 

PM2.5 precursor emissions inventories submitted by CARB on January 

14, 2013 for the San Francisco Bay Area nonattainment area, and 

on November 15, 2012 for the Chico nonattainment area. EPA has 

determined that this action is consistent with sections 110 and 

172(c)(3)of the CAA. EPA is publishing this rule without prior 

proposal because the Agency views this as a non-controversial 

revision and anticipates no adverse comments. However, in the 

Proposed Rules section of this Federal Register, we are 

simultaneously proposing approval of the same submitted 

 
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

21

emissions inventories. If we receive adverse comments by [Insert 

date 30 days from date of publication in the Federal Register], 

we will publish a timely withdrawal in the Federal Register to

notify the public that the direct final approval will not take 

effect, and we will address the comments in a subsequent final

action based on the proposal. If we do not receive timely 

adverse comments, the direct final approval will be effective 

without further notice on [Insert date 60 days from date of 

publication in the Federal Register]. This will incorporate 

these emissions inventories into the federally enforceable SIP.

Please note that if EPA receives adverse comment on an 

amendment, paragraph, or section of this SIP revision, and if 

that provision may be severed from the remainder of the 

revision, EPA may adopt as final those provisions of the 

revision that are not the subject of an adverse comment.

IV. Statutory and Executive Order Reviews

Under the Clean Air Act, the Administrator is required to 

approve a SIP submission that complies with the provisions of 

the Act and applicable Federal regulations. 42 U.S.C. 7410(k); 

40 CFR 52.02(a). Thus, in reviewing SIP submissions, EPA’s role 

is to approve State choices, provided that they meet the 

criteria of the Clean Air Act. Accordingly, this action merely 

approves State law as meeting Federal requirements and does not 
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

22

impose additional requirements beyond those imposed by State 

law. For that reason, this 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 (Public Law 104-4);

• does not have Federalism implications as specified in 

Executive Order 13132 (64 FR 43255, August 10, 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 
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

23

(15 U.S.C. 272 note) because application of those 

requirements would be inconsistent with the Clean Air Act; 

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 action 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.

The Congressional Review Act, 5 U.S.C. 801 et seq., as 

added by the Small Business Regulatory Enforcement Fairness Act 

of 1996, generally provides that before a rule may take effect, 

the agency promulgating the rule must submit a rule report, 

which includes a copy of the rule, to each House of the Congress 

and to the Comptroller General of the United States. EPA will 

submit a report containing this action and other required 

information to the U.S. Senate, the U.S. House of 

Representatives, and the Comptroller General of the United 
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

24

States prior to publication of the rule in the Federal Register. 

A major rule cannot take effect until 60 days after it is 

published in the Federal Register. This action is not a “major 

rule” as defined by 5 U.S.C. 804(2). 

Under section 307(b)(1) of the Clean Air Act, petitions for 

judicial review of this action must be filed in the United 

States Court of Appeals for the appropriate circuit by [Insert 

date 60 days from date of publication of this document in the 

Federal Register]. Filing a petition for reconsideration by the 

Administrator of this final rule does not affect the finality of 

this action for the purposes of judicial review nor does it 

extend the time within which a petition for judicial review may 

be filed, and shall not postpone the effectiveness of such rule 

or action. Parties with objections to this direct final rule 

are encouraged to file a comment in response to the parallel 

notice of proposed rulemaking for this action published in the

Proposed Rules section of today’s Federal Register, rather than 

file an immediate petition for judicial review of this direct 

final rule, so that EPA can withdraw this direct final rule and 

address the comment in the proposed rulemaking. This action may 

not be challenged later in proceedings to enforce its 

requirements (see section 307(b)(2)).

List of Subjects in 40 CFR Part 52
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

25

Environmental protection, Air pollution control, 

Incorporation by reference Intergovernmental relations, Nitrogen 

dioxide, Particulate matter, Reporting and recordkeeping 

requirements, Sulfur oxides, Volatile organic compounds.

 ________________ _________________ 

Date Jared Blumenfeld

Regional Administrator,

Region IX.
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

26

Part 52, Chapter I, Title 40 of the Code of Federal 

Regulations is amended as follows: 

PART 52 – APPROVAL AND PROMULGATION OF IMPLEMENTATION PLANS

1. The authority citation for Part 52 continues to read as 

follows: 

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

Subpart F – California 

2. Section 52.220, is amended by adding paragraphs (c)(434) and 

(c)(435) to read as follows:

§52.220 Identification of plan.

* * * * *

(c) * * *

(434) A plan revision submitted on November 15, 2012 by the 

Governor’s Designee. 

(i) [Reserved] 

(ii) Additional materials.

(A) Butte County Air Quality Management District.

(1) “2012 PM2.5 Emission Inventory Submittal to the State 

Implementation Plan for the Chico, CA/Butte County (partial) 

Planning Area,” as submitted by the California Air Resources 

Board on November 15, 2012. The document in CARB’s submittal is 

titled, “Chico Nonattainment Area (Partial Butte County) 2011 

Daily Winter-Time Emissions Inventory (Base Year 2005-Grown and 
This document is a prepublication version signed by EPA Regional 

Administrator Jared Blumenfeld on January 30, 2014. We have taken steps to 

ensure the accuracy of this version, but it is not the official version.

27

Controlled in Tons Per Day.” 

(435) A plan revision submitted on January 14, 2013 by the 

Governor’s Designee. 

(i) [Reserved] 

(ii) Additional materials.

(A) San Francisco Bay Area Air Quality Management District.

(1) “2012 PM2.5 Emission Inventory to the State Implementation 

Plan for the San Francisco Bay Area” as submitted by the 

California Air Resources Board on January 14, 2013. The document 

in CARB’s submittal is titled, “Bay Area Winter Emissions 

Inventory for Primary PM2.5 & PM Precursors: Year 2010.” 

* * * * *