Document ID: EPA-HQ-OAR-2004-0091-0025
Agency: epa
Document Type: Proposed Rule
Title: Outer Continental Shelf Air Regulations Consistency Update for California
Posted Date: 2006-03-23T20:56:11Z

[Federal Register: March 23, 2006 (Volume 71, Number 56)]
[Proposed Rules]               
[Page 14662-14665]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr23mr06-16]                         

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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 55

[OAR-2006-0091; FRL-8048-4]

 
Outer Continental Shelf Air Regulations Consistency Update for 
California

AGENCY: Environmental Protection Agency (``EPA'').

ACTION: Proposed rule--consistency update.

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SUMMARY: EPA is proposing to update a portion of the Outer Continental 
Shelf (``OCS'') Air Regulations. Requirements applying to OCS sources 
located within 25 miles of States' seaward boundaries must be updated 
periodically to remain consistent with the requirements of the 
corresponding onshore area (``COA''), as mandated by section 328(a)(1) 
of the Clean Air Act, as amended in 1990 (``the Act''). The portion of 
the OCS air regulations that is being updated pertains to the 
requirements for OCS sources by the Ventura County Air Pollution 
Control District (Ventura County APCD). The intended effect of 
approving the OCS requirements for the Ventura County APCD is to 
regulate emissions from OCS sources in accordance with the requirements 
onshore. The change to the existing requirements discussed below is 
proposed to be incorporated by reference into the Code of Federal 
Regulations and is listed in the appendix to the OCS air regulations.

DATES: Any comments must arrive by April 24, 2006.

ADDRESSES: Submit comments, identified by docket number OAR-2006-0091, 
by one of the following methods:
    1. Federal eRulemaking Portal: http://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 http://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 
http://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 
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.
    Docket: The index to the docket for this action is available 
electronically at http://www.regulations.gov and in hard copy at EPA 

Region IX, 75 Hawthorne Street, San Francisco, California. 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), 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: Cynthia Allen, Air Division (Air-4), 
U.S. EPA Region 9, 75 Hawthorne Street, San Francisco, CA 94105, (415) 
947-4120, allen.cynthia@epa.gov.

SUPPLEMENTARY INFORMATION: 

I. Background Information

A. Why Is EPA Taking This Action?

    On September 4, 1992, EPA promulgated 40 CFR part 55,\1\ which 
established requirements to control air pollution from OCS sources in 
order to attain and maintain federal and state ambient air quality 
standards and to comply with the provisions of part C of title I of the 
Act. Part 55 applies to all OCS sources offshore of the States except 
those located in the Gulf of Mexico west of 87.5 degrees longitude. 
Section 328 of the Act requires that for such sources located within 25 
miles of a State's seaward boundary, the requirements shall be the same 
as would be applicable if the sources were located in the COA. Because 
the OCS requirements are based on onshore requirements, and onshore 
requirements may change, section 328(a)(1) requires that EPA update the 
OCS requirements as necessary to maintain consistency with onshore 
requirements.
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    \1\ The reader may refer to the Notice of Proposed Rulemaking, 
December 5, 1991 (56 FR 63774), and the preamble to the final rule 
promulgated September 4, 1992 (57 FR 40792) for further background 
and information on the OCS regulations.
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    Pursuant to Sec.  55.12 of the OCS rule, consistency reviews will 
occur (1) at least annually; (2) upon receipt of a Notice of Intent 
under Sec.  55.4; or (3) when a state or local agency submits a rule to 
EPA to be considered for incorporation by reference in part 55. This 
proposed action is being taken in response to the submittal of 
requirements submitted by the Ventura County APCD. Public comments 
received in writing within 30 days of publication of this document will 
be considered by EPA before publishing a final rule.
    Section 328(a) of the Act requires that EPA establish requirements 
to control air pollution from OCS sources located within 25 miles of 
States' seaward boundaries that are the same as onshore requirements. 
To comply with this statutory mandate, EPA must incorporate applicable 
onshore rules into part 55 as they exist onshore. This limits EPA's 
flexibility in deciding which requirements will be incorporated into 
part 55 and prevents EPA from making substantive changes to the 
requirements it incorporates. As a result, EPA may be incorporating 
rules into part 55 that do not conform to all of EPA's state 
implementation plan (SIP) guidance or certain requirements of the Act.
    Consistency updates may result in the inclusion of state or local 
rules or regulations into part 55, even though the

[[Page 14663]]

same rules may ultimately be disapproved for inclusion as part of the 
SIP. Inclusion in the OCS rule does not imply that a rule meets the 
requirements of the Act for SIP approval, nor does it imply that the 
rule will be approved by EPA for inclusion in the SIP.

II. EPA's Evaluation

A. What Criteria Were Used To Evaluate Rules Submitted To Update 40 CFR 
Part 55?

    In updating 40 CFR part 55, EPA reviewed the rules submitted for 
inclusion in part 55 to ensure that they are rationally related to the 
attainment or maintenance of federal or state ambient air quality 
standards or part C of title I of the Act, that they are not designed 
expressly to prevent exploration and development of the OCS and that 
they are applicable to OCS sources. 40 CFR 55.1. EPA has also evaluated 
the rules to ensure they are not arbitrary or capricious. 40 CFR 55.12 
(e). In addition, EPA has excluded administrative or procedural 
rules,\2\ and requirements that regulate toxics which are not related 
to the attainment and maintenance of federal and state ambient air 
quality standards.
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    \2\ Each COA which has been delegated the authority to implement 
and enforce part 55, will use its administrative and procedural 
rules as onshore. However, in those instances where EPA has not 
delegated authority to implement and enforce part 55, EPA will use 
its own administrative and procedural requirements to implement the 
substantive requirements. 40 CFR 55.14 (c)(4).
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B. What Requirements Were Submitted To Update 40 CFR Part 55?

    1. After review of the requirements submitted by the Ventura County 
APCD against the criteria set forth above and in 40 CFR part 55, EPA is 
proposing to make the following District requirements applicable to OCS 
sources:

----------------------------------------------------------------------------------------------------------------
                                                                                                  Adoption or
                Rule No.                                          Name                            amended date
----------------------------------------------------------------------------------------------------------------
42......................................  Permit Fees........................................           04/12/05
72......................................  New Source Performance Standards (NSPS)............           09/13/05
73......................................  National Emission Standards for Hazardous Air                 09/13/05
                                           Pollutants (NESHAPS).
74.9....................................  Stationary Internal Combustion Engines.............           11/08/05
----------------------------------------------------------------------------------------------------------------

III. Administrative Requirements

A. Executive Order 12866, Regulatory Planning and Review

    The Office of Management and Budget (OMB) has exempted this 
regulatory action from Executive Order 12866, entitled ``Regulatory 
Planning and Review.''

B. Paperwork Reduction Act

    This rule does not impose an information collection burden under 
the provisions of the Paperwork Reduction Act of 1995 (44 U.S.C. 3501 
et seq.)

C. Regulatory Flexibility Act

    The Regulatory Flexibility Act (RFA) generally requires an agency 
to conduct a regulatory flexibility analysis of any rule subject to 
notice and comment rulemaking requirements unless the agency certifies 
that the rule will not have a significant economic impact on a 
substantial number of small entities. Small entities include small 
businesses, small not-for-profit enterprises, and small governmental 
jurisdictions.
    This rule will not have a significant impact on a substantial 
number of small entities because SIP approvals under section 110 and 
subchapter I, part D of the Clean Air Act do not create any new 
requirements but simply approve requirements that the State is already 
imposing. Therefore, because the Federal SIP approval does not create 
any new requirements, I certify that this action will not have a 
significant economic impact on a substantial number of small entities.
    Moreover, due to the nature of the Federal-State relationship under 
the Clean Air Act, preparation of flexibility analysis would constitute 
Federal inquiry into the economic reasonableness of state action. The 
Clean Air Act forbids EPA to base its actions concerning SIPs on such 
grounds. Union Electric Co. v. U.S. EPA, 427 U.S. 246, 255-66 (1976); 
42 U.S.C. 7410(a)(2).

D. Unfunded Mandates Reform Act

    Under sections 202 of the Unfunded Mandates Reform Act of 1995 
(``Unfunded Mandates Act''), signed into law on March 22, 1995, EPA 
must prepare a budgetary impact statement to accompany any proposed or 
final rule that includes a Federal mandate that may result in estimated 
costs to State, local, or tribal governments in the aggregate; or to 
the private sector, of $100 million or more. Under section 205, EPA 
must select the most cost-effective and least burdensome alternative 
that achieves the objectives of the rule and is consistent with 
statutory requirements. Section 203 requires EPA to establish a plan 
for informing and advising any small governments that may be 
significantly or uniquely impacted by the rule.
    EPA has determined that the approval action promulgated does not 
include a Federal mandate that may result in estimated costs of $100 
million or more to either State, local, or tribal governments in the 
aggregate, or to the private sector. This Federal action approves pre-
existing requirements under State or local law, and imposes no new 
requirements. Accordingly, no additional costs to State, local, or 
tribal governments, or to the private sector, result from this action.

E. Executive Order 13132, Federalism

    Federalism (64 FR 43255, August 10, 1999) revokes and replaces 
Executive Orders 12612 (Federalism) and 12875 (Enhancing the 
Intergovernmental Partnership). Executive Order 13132 requires EPA to 
develop an accountable process to ensure ``meaningful and timely input 
by State and local officials in the development of regulatory policies 
that have federalism implications.'' ``Policies that have federalism 
implications'' is defined in the Executive Order to include regulations 
that have ``substantial direct effects on the States, on the 
relationship between the national government and the States, or on the 
distribution of power and responsibilities among the various levels of 
government.'' Under Executive Order 13132, EPA may not issue a 
regulation that has federalism implications, that imposes substantial 
direct compliance costs, and that is not required by statute, unless 
the Federal Government provides the funds necessary to pay the direct 
compliance costs incurred by State and local governments, or EPA 
consults with State and local officials early in the process of 
developing the proposed regulation. EPA also may not issue a regulation 
that has federalism implications and that preempts State law unless the 
Agency consults with

[[Page 14664]]

State and local officials early in the process of developing the 
proposed regulation.
    This rule will not have substantial direct effects on the States, 
on the relationship between the national government and the States, or 
on the distribution of power and responsibilities among the various 
levels of government, as specified in Executive Order 13132, because it 
merely approves a state rule implementing a federal standard, and does 
not alter the relationship or the distribution of power and 
responsibilities established in the Clean Air Act. Thus, the 
requirements of section 6 of the Executive Order do not apply to this 
rule.

F. Executive Order 13175, Coordination With Indian Tribal Governments

    Executive Order 13175, entitled ``Consultation and Coordination 
with Indian Tribal Governments'' (65 FR 67249, November 9, 2000), 
requires EPA to develop an accountable process to ensure ``meaningful 
and timely input by tribal officials in the development of regulatory 
policies that have tribal implications.'' This final rule does not have 
tribal implications, as specified in Executive Order 13175. It will not 
have substantial direct effects on tribal governments, on the 
relationship between the Federal Government and Indian tribes, or on 
the distribution of power and responsibilities between the Federal 
Government and Indian tribes. Thus, Executive Order 13175 does not 
apply to this rule.

G. Executive Order 13045, Protection of Children From Environmental 
Health Risks and Safety Risks

    Protection of Children from Environmental Health Risks and Safety 
Risks (62 FR 19885, April 23, 1997), applies to any rule that: (1) Is 
determined to be ``economically significant'' as defined under 
Executive Order 12866, and (2) concerns an environmental health or 
safety risk that EPA has reason to believe may have a disproportionate 
effect on children. If the regulatory action meets both criteria, the 
Agency must evaluate the environmental health or safety effects of the 
planned rule on children, and explain why the planned regulation is 
preferable to other potentially effective and reasonably feasible 
alternatives considered by the Agency.
    This rule is not subject to Executive Order 13045 because it does 
not involve decisions intended to mitigate environmental health or 
safety risks.

H. Executive Order 13211, Actions That Significantly Affect Energy 
Supply, Distribution, or Use

    This rule is not subject to Executive Order 13211, ``Actions 
Concerning Regulations That Significantly Affect Energy Supply, 
Distribution, or Use'' (66 FR 28355, May 22, 2001) because it is not a 
significant regulatory action under Executive Order 12866.

I. National Technology Transfer and Advancement Act

    Section 12 of the National Technology Transfer and Advancement Act 
(NTTAA) of 1995 requires Federal agencies to evaluate existing 
technical standards when developing a new regulation. To comply with 
NTTAA, EPA must consider and use ``voluntary consensus standards'' 
(VCS) if available and applicable when developing programs and policies 
unless doing so would be inconsistent with applicable law or otherwise 
impractical.
    The EPA believes that VCS are inapplicable to this action. Today's 
action does not require the public to perform activities conducive to 
the use of VCS.

List of Subjects in 40 CFR Part 55

    Environmental protection, Administrative practice and procedures, 
Air pollution control, Hydrocarbons, Incorporation by reference, 
Intergovernmental relations, Nitrogen dioxide, Nitrogen oxides, Outer 
Continental Shelf, Ozone, Particulate matter, Permits, Reporting and 
recordkeeping requirements, Sulfur oxides.

    Dated: March 3, 2006.
Laura Yoshii,
Acting Regional Administrator, Region IX.

    Title 40, chapter I of the Code of Federal Regulations, is proposed 
to be amended as follows:

PART 55--[AMENDED]

    1. The authority citation for part 55 continues to read as follows:

    Authority: Section 328 of the Clean Air Act (42 U.S.C. 7401 et 
seq.) as amended by Public Law 101-549.

    2. Section 55.14 is amended by revising paragraph (e)(3)(ii)(H) to 
read as follows:

Sec.  55.14  Requirements that apply to OCS sources located within 25 
miles of States' seaward boundaries, by State.

* * * * *
    (e) * * *
    (3) * * *
    (ii) * * *
    (H) Ventura County Air Pollution Control District Requirements 
Applicable to OCS Sources.
* * * * *

Appendix to Part 55--[Amended]

    3. Appendix A to CFR Part 55 is amended by revising paragraph 
(b)(8) under the heading ``California'' to read as follows:

Appendix A to 40 CFR Part 55--Listing of State and Local Requirements 
Incorporated by Reference Into Part 55, by State

* * * * *

California

* * * * *
    (b) * * *
    (8) The following requirements are contained in Ventura County 
Air Pollution Control District Requirements Applicable to OCS 
Sources:

Rule 2: Definitions (Adopted 4/13/04)
Rule 5: Effective Date (Adopted 4/13/04)
Rule 6: Severability (Adopted 11/21/78)
Rule 7: Zone Boundaries (Adopted 6/14/77)
Rule 10: Permits Required (Adopted 4/13/04)
Rule 11: Definition for Regulation II (Adopted 6/13/95)
Rule 12: Application for Permits (Adopted 6/13/95)
Rule 13: Action on Applications for an Authority to Construct 
(Adopted 6/13/95)
Rule 14: Action on Applications for a Permit to Operate (Adopted 6/
13/95)
Rule 15.1: Sampling and Testing Facilities (Adopted 10/12/93)
Rule 16: BACT Certification (Adopted 6/13/95)
Rule 19: Posting of Permits (Adopted 5/23/72)
Rule 20: Transfer of Permit (Adopted 5/23/72)
Rule 23: Exemptions from Permits (Revised 4/13/04)
Rule 24: Source Recordkeeping, Reporting, and Emission Statements 
(Adopted 9/15/92)
Rule 26: New Source Review (Adopted 10/22/91)
Rule 26.1: New Source Review--Definitions (Adopted 5/14/02)
Rule 26.2: New Source Review--Requirements (Adopted 5/14/02)
Rule 26.3: New Source Review--Exemptions (Adopted 5/14/02)
Rule 26.6: New Source Review--Calculations (Adopted 5/14/02)
Rule 26.8: New Source Review--Permit To Operate (Adopted 10/22/91)
Rule 26.10: New Source Review--PSD (Adopted 1/13/98)
Rule 26.11: New Source Review--ERC Evaluation At Time of Use 
(Adopted 5/14/02)
Rule 28: Revocation of Permits (Adopted 7/18/72)
Rule 29: Conditions on Permits (Adopted 10/22/91)
Rule 30: Permit Renewal (Adopted 4/13/04)
Rule 32: Breakdown Conditions: Emergency Variances, A., B.1., and D. 
only. (Adopted 2/20/79)

[[Page 14665]]

Rule 33: Part 70 Permits--General (Adopted 10/12/93)
Rule 33.1: Part 70 Permits--Definitions (Adopted 4/10/01)
Rule 33.2: Part 70 Permits--Application Contents (Adopted 4/10/01)
Rule 33.3: Part 70 Permits--Permit Content (Adopted 4/10/01)
Rule 33.4: Part 70 Permits--Operational Flexibility (Adopted 4/10/
01)
Rule 33.5: Part 70 Permits--Time frames for Applications, Review and 
Issuance (Adopted 10/12/93)
Rule 33.6: Part 70 Permits--Permit Term and Permit Reissuance 
(Adopted 10/12/93)
Rule 33.7: Part 70 Permits--Notification (Adopted 4/10/01)
Rule 33.8: Part 70 Permits--Reopening of Permits (Adopted 10/12/93)
Rule 33.9: Part 70 Permits--Compliance Provisions (Adopted 4/10/01)
Rule 33.10: Part 70 Permits--General Part 70 Permits (Adopted 10/12/
93)
Rule 34: Acid Deposition Control (Adopted 3/14/95)
Rule 35: Elective Emission Limits (Adopted 11/12/96)
Rule 36: New Source Review--Hazardous Air Pollutants (Adopted 10/6/
98)
Rule 42: Permit Fees (Adopted 4/12/05)
Rule 44: Exemption Evaluation Fee (Adopted 9/10/96)
Rule 45: Plan Fees (Adopted 6/19/90)
Rule 45.2: Asbestos Removal Fees (Adopted 8/4/92)
Rule 47: Source Test, Emission Monitor, and Call-Back Fees (Adopted 
6/22/99)
Rule 50: Opacity (Adopted 4/13/04)
Rule 52: Particulate Matter-Concentration (Adopted 4/13/04)
Rule 53: Particulate Matter-Process Weight (Adopted 4/13/04)
Rule 54: Sulfur Compounds (Adopted 6/14/94)
Rule 56: Open Burning (Revised 11/11/03)
Rule 57: Incinerators (Adopted 1/11/05)
Rule 57.1: Particulate Matter Emissions From Fuel Burning Equipment 
(Adopted 1/11/05)
Rule 62.7: Asbestos--Demolition and Renovation (Adopted 6/16/92)
Rule 63: Separation and Combination of Emissions (Adopted 11/21/78)
Rule 64: Sulfur Content of Fuels (Adopted 4/13/99)
Rule 67: Vacuum Producing Devices (Adopted 7/5/83)
Rule 68: Carbon Monoxide (Adopted 4/13/04)
Rule 71: Crude Oil and Reactive Organic Compound Liquids (Adopted 
12/13/94)
Rule 71.1: Crude Oil Production and Separation (Adopted 6/16/92)
Rule 71.2: Storage of Reactive Organic Compound Liquids (Adopted 9/
26/89)
Rule 71.3: Transfer of Reactive Organic Compound Liquids (Adopted 6/
16/92)
Rule 71.4: Petroleum Sumps, Pits, Ponds, and Well Cellars (Adopted 
6/8/93)
Rule 71.5: Glycol Dehydrators (Adopted 12/13/94)
Rule 72: New Source Performance Standards (NSPS) (Adopted 9/13/05)
Rule 73: National Emission Standards for Hazardous Air Pollutants 
(NESHAPS) (Adopted 9/13/05)
Rule 74: Specific Source Standards (Adopted 7/6/76)
Rule 74.1: Abrasive Blasting (Adopted 11/12/91)
Rule 74.2: Architectural Coatings (Adopted 11/13/01)
Rule 74.6: Surface Cleaning and Degreasing (Revised 11/11/03--
effective 7/1/04)
Rule 74.6.1: Batch Loaded Vapor Degreasers (Adopted 11/11/03--
effective 7/1/04)
Rule 74.7: Fugitive Emissions of Reactive Organic Compounds at 
Petroleum Refineries and Chemical Plants (Adopted 10/10/95)
Rule 74.8: Refinery Vacuum Producing Systems, Waste-water Separators 
and Process Turnarounds (Adopted 7/5/83)
Rule 74.9: Stationary Internal Combustion Engines (Adopted 11/8/05)
Rule 74.10: Components at Crude Oil Production Facilities and 
Natural Gas Production and Processing Facilities (Adopted 3/10/98)
Rule 74.11: Natural Gas-Fired Residential Water Heaters--Control of 
NOX (Adopted 4/9/85)
Rule 74.11.1: Large Water Heaters and Small Boilers (Adopted 9/14/
99)
Rule 74.12: Surface Coating of Metal Parts and Products (Adopted 11/
11/03)
Rule 74.15: Boilers, Steam Generators and Process Heaters (Adopted 
11/8/94)
Rule 74.15.1: Boilers, Steam Generators and Process Heaters (Adopted 
6/13/00)
Rule 74.16: Oil Field Drilling Operations (Adopted 1/8/91)
Rule 74.20: Adhesives and Sealants (Adopted 1/11/05)
Rule 74.23: Stationary Gas Turbines (Adopted 1/08/02)
Rule 74.24: Marine Coating Operations (Revised 11/11/03)
Rule 74.24.1: Pleasure Craft Coating and Commercial Boatyard 
Operations (Adopted 1/08/02)
Rule 74.26: Crude Oil Storage Tank Degassing Operations (Adopted 11/
8/94)
Rule 74.27: Gasoline and ROC Liquid Storage Tank Degassing 
Operations (Adopted 11/8/94)
Rule 74.28: Asphalt Roofing Operations (Adopted 5/10/94)
Rule 74.30: Wood Products Coatings (Revised 11/11/03)
Rule 75: Circumvention (Adopted 11/27/78)
Rule 101: Sampling and Testing Facilities (Adopted 5/23/72)
Rule 102: Source Tests (Adopted 4/13/04)
Rule 103: Continuous Monitoring Systems (Adopted 2/9/99)
Rule 154: Stage 1 Episode Actions (Adopted 9/17/91)
Rule 155: Stage 2 Episode Actions (Adopted 9/17/91)
Rule 156: Stage 3 Episode Actions (Adopted 9/17/91)
Rule 158: Source Abatement Plans (Adopted 9/17/91)
Rule 159: Traffic Abatement Procedures (Adopted 9/17/91)
Rule 220: General Conformity (Adopted 5/9/95)
Rule 230: Notice to Comply (Adopted 11/9/99)
* * * * *
[FR Doc. E6-4204 Filed 3-22-06; 8:45 am]

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