Source: https://www.federalregister.gov/articles/2012/12/06/2012-29513/california-state-nonroad-engine-pollution-control-standards-portable-equipment-registration-program
Timestamp: 2015-03-31 11:21:15
Document Index: 279673855

Matched Legal Cases: ['§ 209', '§ 41750', '§ 41752', '§ 2450', 'art 1074', '§ 213']

Federal Register | California State Nonroad Engine Pollution Control Standards; Portable Equipment Registration Program; Notice of Decision
77 FR 72851
-72856 (6 pages)
Document Number: 2012-29513
Shorter URL: https://federalregister.gov/a/2012-29513 Regulations.gov Docket Info
California State Nonroad Engine Pollution Control Standards; Request for Authorization of Portable Equipment Registration Program
EPA is granting authorization for the California Air Resources Board's (CARB's) amendments to its Portable Equipment Registration Program (PERP), and confirming that certain portions of CARB's PERP program is within the scope of previous EPA authorizations. PERP is a voluntary statewide program that enables registration of nonroad engines and equipment that operate at multiple locations across California, so that the engine and equipment owners can operate throughout California without obtaining permits from local air pollution control districts.
A. California's PERP Authorization Request
A. Full Authorization Analysis
EPA has established a docket for this action under Docket ID EPA-HQ-OAR-2011-0102. All documents relied upon in making this decision, including those submitted to EPA by CARB, are contained in the public docket. Publicly available docket materials are available either electronically through www.regulations.gov or in hard copy at the Air and Radiation Docket in the EPA Headquarters Library, EPA West Building, Room 3334, located at 1301 Constitution Avenue NW., Washington, DC. The Public Reading Room is open to the public on all federal government working days from 8:30 a.m. to 4:30 p.m.; generally, it is open Monday through Friday, excluding holidays. The telephone number for the Reading Room is (202) 566-1744. The Air and Radiation Docket and Information Center's Web site is http://www.epa.gov/oar/docket.html. The electronic mail (email) address for the Air and Radiation Docket is: a-and-r-Docket@epa.gov, the telephone number is (202) 566-1742, and the fax number is (202) 566-9744. An electronic version of the public docket is available through the federal government's electronic public docket and comment system. You may access EPA dockets at http://www.regulations.gov. After opening the www.regulations.gov Web site, enter EPA-HQ-OAR-2011-0102 in the “Enter Keyword or ID” fill-in box to view documents in the record. Although a part of the official docket, the public docket does not include Confidential Business Information (“CBI”) or other information whose disclosure is restricted by statute.
In a letter dated December 5, 2008, CARB submitted to EPA its request pursuant to section 209 of the Clean Air Act (“CAA” or “the Act”), regarding its Portable Equipment Registration Program (“PERP”).
The PERP was established by CARB as a voluntary program to address the concern that equipment owners who moved equipment within California often faced the need to obtain preconstruction and operating permits from different local air pollution control districts in the state.
The PERP allows voluntary registration of either spark-ignition (SI) or compression-ignition (CI) portable piston driven internal combustion engines or portable equipment units. Under the PERP, once registered, equipment is no longer subject to local air pollution control district permitting requirements. Rather, registration with the PERP allows equipment to be moved more freely within the state. “Portable” as defined within CARB's PERP program, means equipment that is designed and capable of being transported from one location to another. Not all equipment is eligible for registration in the PERP; generally, engines used for propulsion, as part of a stationary source, or used to produce power into the California electricity grid are not eligible for registration under the PERP. The PERP sets out four general requirements applicable to all registered equipment: (1) Registered equipment may not operate in a manner that causes a nuisance; (2) registered equipment may not interfere with attainment of federal or state air quality standards; (3) registered equipment may not cause an exceedance of an ambient air quality standard; and (4) owners of registered equipment (or combined operation of such equipment) must provide notice and comply with requirements for prevention of significant deterioration (PSD) if it would constitute a major modification of that source. The PERP also has specific requirements for both registered engines and certain types of equipment units. For engines, the specific requirements include fuel-type restrictions, opacity limits, mass emissions and emission concentration limits, and metering requirements, based on engine size. With limited exceptions, after January 1, 2006, only engines that meet the most stringent CARB or EPA emission standards in effect at the time of registration are allowed in the PERP. Registered compression-ignition engines must also meet requirements of the CARB Airborne Toxic Control Measure (ATCM) for in-use portable diesel-fueled engines 50 brake-horsepower (hp) and greater portable engines (CARB's portable diesel equipment (PDE) regulations).
In 1995, the California Legislature passed Assembly Bill (AB) 531 to address a perceived problem with the use of portable equipment and associated engines that were operated in more than one air pollution control district.
CARB was directed by AB 531 to create and administer a voluntary statewide program for the registration of portable equipment.
In 1997, CARB adopted regulations creating the PERP,
which was amended by CARB in 1998, 2005, 2006, and March 2007.
CARB adopted Resolution 07-9 on March 22, 2007, which amended the PERP, after a public hearing held earlier that month.
Executive Order G-07-013 was issued by the Executive Officer, and the regulations were submitted to the Office of Administrative Law (OAL), on July 31, 2007.
On September 12, 2007, OAL approved the regulations and they became operative the same day.
CARB has requested that EPA confirm that parts of the voluntary PERP for portable engines and equipment fall within the scope of previously issued authorizations or submitted authorization requests (i.e., the ATCM for Portable Diesel Engines),
and that the Administrator grant a new authorization for those emission standards not otherwise covered by a within-the-scope confirmation.
Section 209(e)(1) of the Act permanently preempts any State, or political subdivision thereof, from adopting or attempting to enforce any standard or other requirement relating to the control of emissions for certain new nonroad engines or vehicles. States are also preempted from adopting and enforcing standards and other requirements related to the control of emissions from non-new nonroad engines or vehicles. Section 209(e)(2) requires the Administrator, after notice and opportunity for public hearing, to authorize California to enforce such standards and other requirements, unless EPA makes one of three findings. In addition, other states with attainment plans may adopt and enforce such regulations if the standards, and implementation and enforcement procedures, are identical to California's standards. On July 20, 1994, EPA promulgated a rule that sets forth, among other things, regulations providing the criteria, as found in section 209(e)(2), which EPA must consider before granting any California authorization request for new nonroad engine or vehicle emission standards.
[t]he language of the statute and it's legislative history indicate that California's regulations, and California's determinations that they must comply with the statute, when presented to the Administrator are presumed to satisfy the waiver requirements and that the burden of proving otherwise is on whoever attacks them. California must present its regulations and findings at the hearing and thereafter the parties opposing the waiver request bear the burden of persuading the Administrator that the waiver request should be denied.
Upon review of CARB's request, EPA offered an opportunity for a public hearing, and requested written comment on issues relevant to a full section 209(e) authorization analysis, by publication of a Federal Register notice on February 9, 2011.
In response to EPA's February 9, 2011 Federal Register notice,
EPA received one request for a hearing, which was later withdrawn, and no public comments.
Section 209(e)(2)(i) of the Act instructs that EPA cannot grant an authorization if the agency finds that California was arbitrary and capricious in its determination that its standards are, in the aggregate, at least as protective of public health and welfare as applicable federal standards. CARB made a protectiveness determination in Resolution 07-9, finding that California's PERP is, “in the aggregate, at least as protective of publichealth and welfare as applicable federal standards.”
CARB presents that California's PERP is at least as stringent as the federal standards: “since no federal standards exist for in-use nonroad engines,
Furthermore, no commenter has presented any argument or evidence to suggest that California no longer needs a separate mobile source emissions program to address compelling and extraordinary conditions in California. Therefore, EPA has determined that we cannot deny California an authorization for its PERP under section 209(e)(2)(ii).
To be consistent with section 209(a) of the Clean Air Act, California's PERP must not apply to new motor vehicles or new motor vehicle engines. California's PERP expressly applies only to portable vehicles and expressly precludes registration of engines used to propel motor vehicles as defined by section 216(2) of the Clean Air Act.
No commenter presented otherwise. Therefore, EPA cannot deny California's request on the basis that California's PERP is not consistent with section 209(a).
To be consistent with section 209(e)(1) of the Clean Air Act, California's PERP must not affect new farming or construction vehicles or engines that are below 175 horsepower, or new locomotives or their engines. CARB presents that “locomotive and locomotive engines cannot be registered in the Statewide Program.”
CARB also presents that new farm and construction equipment do not fall under the program.
No commenter presented otherwise. Therefore, EPA cannot deny California's request on the basis that California's PERP is not consistent with section 209(e)(1).
CARB presents that the technology required to comply with its PERP has already been established and is currently available.
CARB further stresses that admission into PERP is entirely voluntary, so any costs associated with compliance of the program are voluntarily incurred by those that choose to participate in the program.
The economic impact comes from fees for non-compliant engines. However, if affected parties were instead required to purchase new engines that meet current emission standards, the overall cost to those parties would be around $250 million.
The PERP thus results in an estimated savings of $243.4 million.
CARB presents that the PERP requirements raise no issue regarding test procedure consistency because the tests procedures incorporated into the program are existing EPA and CARB test procedures.
Either agency's test procedures may be used to demonstrate compliance with the program.
In our February 9, 2011 Federal Register notice, EPA sought comment on a range of issues, including those applicable to a within-the-scope analysis as well as those applicable to a full waiver analysis. EPA received no public comment in response to our request, including no public comments on whether EPA should consider CARB's request according to a within-the-scope analysis of full authorization analysis. Therefore, we have evaluated CARB's request by application of our traditional analysis of authorizations. At the same time, CARB believes it meets the requirements for a within-the-scope confirmation to the extent that EPA has already authorized the numeric emission standards referenced in its PERP program. According to our analysis, as discussed below, we can confirm that the PERP program is within the scope of previous authorizations issued on September 21, 1995 (60 FR 48981), May 23, 2006 (71 FR 29621), and April 4, 2012 (75 FR 8056).
EPA issued an authorization of CARB's diesel emission standards for 1996 and later new diesel cycle engines 175 horsepower and greater on September 21, 1995 (60 FR 48981). EPA also issued authorizations applicable to CARB's large off-road spark-ignition engine standards on May 23, 2006 (71 FR 29621) and April 4, 2012 (75 FR 8056). As discussed above, the first two within-the-scope criteria regarding protectiveness and consistency with section 209 of the Act have been established for the PERP program. Additionally, because registration to such standards does not appear to present a new issue, and no commenter presented otherwise, EPA can confirm that CARB's PERP program is within the scope of the above-noted EPA authorizations, to the extent that the PERP requirements are reliant upon the emission standards at the heart of the above-noted authorizations.
To the extent that CARB's PERP program allows registration of engines and equipment to emission standards that are not the subject of a previous EPA authorization, EPA cannot confirm they are within the scope as consideration of those provisions present “new issues” that have not previously been the subject of an authorization.
The Administrator has delegated the authority to grant California section 209(e) authorizations to the Assistant Administrator for Air and Radiation. After evaluating California's PERP amendments, and CARB's submissions, EPA is granting an authorization to California for its PERP amendments. To the extent that the PERP program allows registration of equipment for which EPA has already issued authorizations to California, EPA is confirming that those provisions are within the scope of its previous authorizations.
[FR Doc. 2012-29513 Filed 12-5-12; 8:45 am]
1. California Air Resources Board (CARB), Request for Authorization, December 5, 2008, EPA-HQ-OAR-2011-0102-0002.
2. CARB notes in its request that “For the record, CARB believes that because participation in the Statewide Program is voluntary, the emission standards for registered nonroad engines are not subject to the [Clean Air Act] § 209 preemption. Since the emission standards apply only if an owner voluntarily elects to register, the standards do not constitute `standards and other requirements' within the meaning of section 209(e), which CARB believes only applies to mandated requirements. However, without prejudice to CARB's position and to avoid further delay in obtaining federal authorization, CARB submits this request.” EPA takes no position here on CARB's beliefs with respect to its need for authorization of a voluntary program.
3. CARB has requested an authorization for its air toxic control measure for portable diesel engines. EPA announced the opportunity for public hearing and public comment on that request by a Federal Register notice published February 9, 2011. See 76 FR 7196 (February 9, 2011).
4. CARB, Request for Authorization at 2; California Health and Safety Code (CA HSC) § 41750.
5. CA HSC § 41752.
6. California Code of Regulations, title 13 §§ 2450 through 2465.
7. CARB, Request for Authorization at 3.
8. Id.; CARB, Resolution 07-9 at 1.
9. CARB, Resolution 07-9 at 1.
11. See California State Nonroad Engine Pollution Control Standards; Authorization of State Standards for 1996 and later New Diesel Cycle Engines 175 Horsepower and Greater, 60 FR 48981 (September 21, 1995); California State Nonroad Engine and Vehicle Pollution Control Standards; Authorization of Large Off-Road Spark-Ignition Engine Standards, Notice of Decision, 71 FR 29621 (May 23, 2006).
12. 59 FR 36969 (July 20, 1994).
13. 62 FR 67733 (December 30, 1997). The applicable regulations, now in 40 CFR part 1074, subpart B, 1074.105, provide:
14. 59 FR 36969 (July 20, 1994).
15. MEMA I, 627 F.2d at 1122.
19. See, e.g., 40 FR 21102-103 (May 28, 1975).
20. MEMA I, 627 F.2d at 1121.
21. Id. at 1126.
23. 76 FR 7194 (February 9, 2011).
25. EPA, “Memorandum from Brianna Iddings to Docket ID EPA-HQ-OAR-2011-0102,” EPA-HQ-OAR-2011-0102-0014.
26. CARB, Resolution 07-9 at 5.
27. CAA § 213.
28. CARB, Request for Authorization at 14.
29. See 74 FR 32744, 32761 (July 8, 2009); 49 FR 18887, 18889-18890 (May 3, 1984).
30. CARB, Resolution 07-9 at 5.
31. 49 FR 18887, 18890 (May 3, 1984); see also 76 FR 34693 (June 14, 2011), 74 FR 32744, 32763 (July 8, 2009), and 73 FR 52042 (September 8, 2008).
32. CARB, Request for Authorization at 12.
35. MEMA I, 627 F.2d at 1126.
36. H.R. Rep. No. 95-294, 95th Cong., 1st Sess. 301 (1977).
37. See, e.g., 49 FR 1887, 1895 (May 3, 1984); 43 FR 32182, 32183 (July 25, 1978); 41 FR 44209, 44213 (October 7, 1976).
38. 41 FR 44209 (October 7, 1976).
39. H.R. Rep. No. 95-294, 95th Cong., 1st Sess. 301 (1977).
40. CARB, Request for Authorization at 16-17.
41. Id. at 16.
43. CARB Staff Report: Initial Statement of Reasons for the Proposed Amendments to the Statewide Portable Equipment Registration Program Regulation and Airborne Toxic Control Measure for Diesel Particulate Matter From Portable Engines at vi.-vii.
44. Id. at vii.
46. See, e.g., 43 FR 32182 (July 25, 1978).
47. CARB, Request for Authorization at 17.
49. To the extent that any provision in CARB's PERP program, which is herein confirmed as within the scope, is later construed as not within-the-scope of EPA's prior authorizations, then a full authorization is appropriate and granted based upon the full authorization evaluation as discussed above.