Greenhouse Gas Emissions and Fuel Efficiency Standards for Medium- and Heavy-Duty Engines and Vehicles--Phase 2--Notice of Data Availability |
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Raymond R. Posten, National Highway Traffic Safety Administration
Christopher Grundler, Environmental Protection Agency
March 2, 2016
[Federal Register Volume 81, Number 41 (Wednesday, March 2, 2016)]
[Proposed Rules]
[Pages 10822-10826]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-04613]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Parts 85, 86, 1036, 1037, 1065, 1066, and 1068
DEPARTMENT OF TRANSPORTATION
National Highway Traffic Safety Administration
49 CFR Parts 523, 534, and 535
[EPA-HQ-OAR-2014-0827; NHTSA-2014-0132; FRL-9942-94-OAR]
RIN 2060-AS16; RIN 2127-AL52
Greenhouse Gas Emissions and Fuel Efficiency Standards for
Medium- and Heavy-Duty Engines and Vehicles--Phase 2--Notice of Data
Availability
AGENCIES: Environmental Protection Agency (EPA) and Department of
Transportation (DOT) National Highway Traffic Safety Administration
(NHTSA).
ACTION: Notice of data availability.
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SUMMARY: This Notice provides an opportunity to comment on new
information being made available by the EPA and by NHTSA, on behalf of
DOT, related to the proposed Phase 2 Heavy-Duty National Program
proposed July 13, 2015, to reduce greenhouse gas emissions and fuel
consumption for new on-road heavy-duty vehicles and engines. The new
information, including memoranda and data, have been placed in the
public dockets. Data relating to the potential stringency of the
proposed standards includes: Powertrain data; additional aerodynamic
test data; supplemental test data relating to drive cycles (and
frequency thereof) for vocational vehicles; and cycle average mapping
data. The agencies are soliciting additional comment on certain revised
test reports, and a revised version of the Greenhouse Gas Emission
Model (GEM) used both in developing certain of the proposed standards
and in demonstrating compliance with those standards. Additionally, EPA
is soliciting further comment on memoranda relating to standard
applicability and implementation. These memoranda address potential
requirements for selective enforcement audits and confirmatory testing
related to greenhouse gas emissions, and applicability of emission
standards and certification responsibilities for trailers, glider
vehicles, and glider kits. Finally, EPA is soliciting additional
comments on issues discussed in a late comment related to light-duty
motor vehicles used for racing.
DATES: Comments must be received on or before April 1, 2016.
ADDRESSES: Submit your comments, identified by Docket ID No. EPA-HQ-
OAR-2014-0827 (for EPA's docket) and NHTSA-2014-0132 (for NHTSA's
docket), by one of the following methods:
Online: www.regulations.gov: Follow the on-line
instructions for submitting comments.
Email: a-and-r-docket@epa.gov.
Mail:
EPA: Air and Radiation Docket and Information Center, Environmental
Protection Agency, Mailcode: 28221T, 1200 Pennsylvania Ave. NW.,
Washington, DC 20460.
NHTSA: Docket Management Facility, M-30, U.S. Department of
Transportation, West Building, Ground Floor, Rm. W12-140, 1200 New
Jersey Avenue SE., Washington, DC 20590.
Hand Delivery:
EPA: EPA Docket Center, EPA WJC West Building, Room 3334, 1301
Constitution Ave. NW., Washington, DC 20460. Such deliveries are only
accepted during the Docket's normal hours of operation, and special
arrangements should be made for deliveries of boxed information.
NHTSA: West Building, Ground Floor, Rm. W12-140, 1200 New Jersey
Avenue SE., Washington, DC 20590, between 9 a.m. and 4 p.m. Eastern
Time, Monday through Friday, except Federal Holidays.
Instructions: Direct your comments to Docket ID No. EPA-HQ-OAR-
2014-0827 and/or NHTSA-2014-0132, as follows:
EPA: Direct your comments to Docket ID No EPA-HQ-OAR-2014-0827.
EPA's policy is that all comments received 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 information claimed to be Confidential
Business Information (CBI) or other information whose disclosure is
restricted by statute. Do not submit information that you consider to
be CBI or otherwise protected through www.regulations.gov or email. The
www.regulations.gov Web site is an ``anonymous access'' system, which
means EPA will not know your identity or contact information unless you
provide it in the body of your comment. If you send an email comment
directly to EPA without going through www.regulations.gov your email
address will be automatically captured and included as part of the
comment that is placed in the public docket and made
[[Page 10823]]
available on the Internet. If you submit an electronic comment, EPA
recommends that you include your name and other contact information in
the body of your comment and with any disk or CD-ROM you submit. 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. For
additional information about EPA's public docket visit the EPA Docket
Center homepage at http://www.epa.gov/epahome/dockets.htm.
NHTSA: Your comments must be written and in English. To ensure that
your comments are correctly filed in the Docket, please include the
Docket number NHTSA-2014-0132 in your comments. Your comments must not
be more than 15 pages long.\1\ NHTSA established this limit to
encourage you to write your primary comments in a concise fashion.
However, you may attach necessary additional documents to your
comments, and there is no limit on the length of the attachments. If
you are submitting comments electronically as a PDF (Adobe) file, we
ask that the documents submitted be scanned using the Optical Character
Recognition (OCR) process, thus allowing the agencies to search and
copy certain portions of your submissions.\2\ Please note that pursuant
to the Data Quality Act, in order for the substantive data to be relied
upon and used by the agency, it must meet the information quality
standards set forth in the OMB and Department of Transportation (DOT)
Data Quality Act guidelines. Accordingly, we encourage you to consult
the guidelines in preparing your comments. OMB's guidelines may be
accessed at http://www.whitehouse.gov/omb/fedreg/reproducible.html.
DOT's guidelines may be accessed at http://www.dot.gov/dataquality.htm.
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\1\ See 49 CFR 553.21.
\2\ Optical character recognition (OCR) is the process of
converting an image of text, such as a scanned paper document or
electronic fax file, into computer-editable text.
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Docket: All documents in the docket are listed on the
www.regulations.gov Web site. Although listed in the index, some
information is not publicly available, e.g., confidential business
information or other information whose disclosure is restricted by
statute. Certain other material, such as copyrighted material, is not
placed on the Internet and will be publicly available only in hard copy
form. Publicly available docket materials are available either
electronically through www.regulations.gov or in hard copy at the
following locations:
EPA: Air and Radiation Docket and Information Center, EPA/DC,
EPA WJC West Building, 1301 Constitution Ave. NW., Room 3334,
Washington, DC. The Public Reading Room is open from 8:30 a.m. to
4:30 p.m., Monday through Friday, excluding legal holidays. The
telephone number for the Public Reading Room is (202) 566-1744, and
the telephone number for the Air Docket is (202) 566-1742.
NHTSA: Docket Management Facility, M-30, U.S. Department of
Transportation, West Building, Ground Floor, Rm. W12-140, 1200 New
Jersey Avenue SE., Washington, DC 20590. The telephone number for
the docket management facility is (202) 366-9324. The docket
management facility is open between 9 a.m. and 5 p.m. Eastern Time,
Monday through Friday, except Federal Holidays.
FOR FURTHER INFORMATION CONTACT:
EPA: Tad Wysor, Office of Transportation and Air Quality,
Assessment and Standards Division (ASD), Environmental Protection
Agency, 2000 Traverwood Drive, Ann Arbor, MI 48105; telephone number:
(734) 214-4332; email address: wysor.tad@epa.gov.
NHTSA: Ryan Hagen, Office of Chief Counsel, National Highway
Traffic Safety Administration, 1200 New Jersey Avenue SE., Washington,
DC 20590. Telephone: (202) 366-2992; ryan.hagen@dot.gov.
SUPPLEMENTARY INFORMATION:
A. Does this action apply to me?
This action relates to a previously promulgated Proposed Rule that
would potentially affect companies that manufacture, sell, or import
into the United States new heavy-duty engines and new Class 2b through
8 trucks, including combination tractors, all types of buses,
vocational vehicles including municipal, commercial, recreational
vehicles, and commercial trailers as well as \3/4\-ton and 1-ton pickup
trucks and vans. The heavy-duty category incorporates all motor
vehicles with a gross vehicle weight rating of 8,500 pounds or greater,
and the engines that power them, except for medium-duty passenger
vehicles already covered by the greenhouse gas standards and corporate
average fuel economy standards issued for light-duty model year 2017-
2025 vehicles. Proposed categories and entities that might be affected
include the following:
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Examples of potentially
Category NAICS Code \a\ affected entities
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Industry...................... 336110 Motor Vehicle
336111 Manufacturers, Engine
336112 Manufacturers, Engine
333618 Parts Manufacturers,
Truck Manufacturers,
Truck Trailer
Manufacturers,
Automotive Parts and
Accessories Dealers.
336120
336212
441310
Industry...................... 541514 Commercial Importers of
811112 Vehicles and Vehicle
811198 Components.
Industry...................... 336111 Alternative Fuel
Vehicle Converters.
336112
422720
454312
541514
541690
811198
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Note:
\a\ North American Industry Classification System (NAICS).
[[Page 10824]]
This table is not intended to be exhaustive, but rather provides a
guide for readers regarding entities likely covered by these rules.
This table lists the types of entities that the agencies are aware may
be regulated by this action. Other types of entities not listed in the
table could also be regulated. To determine whether your activities are
regulated by this action, you should carefully examine the
applicability criteria in the referenced regulations. You may direct
questions regarding the applicability of this action to the persons
listed in the preceding FOR FURTHER INFORMATION CONTACT section.
B. Public Participation
EPA and NHTSA request comment on the information identified in this
Notice. We are not requesting comment on other aspects of this joint
proposed rule. This section describes how you can participate in this
process.
(1) How do I prepare and submit comments?
There are many issues common to EPA's and NHTSA's proposals. For
the convenience of all parties, comments submitted to the EPA docket
will be considered comments submitted to the NHTSA docket, and vice
versa. Therefore, a commenter only needs to submit comments to either
of the agency dockets (or choose to submit a comment to both). Comments
that are submitted for consideration by one agency should be identified
as such, and comments that are submitted for consideration by both
agencies should be identified as such. Absent such identification, each
agency will exercise its best judgment to determine whether a comment
is submitted on its proposal.
(2) Tips for Preparing Your Comments
When submitting comments, please remember to:
Identify the rulemaking by docket number and other identifying
information (subject heading, Federal Register date and page number)
Explain why you agree or disagree, suggest alternatives, and
substitute language for your requested changes
Describe any assumptions and provide any technical information
and/or data that you used
If you estimate potential costs or burdens, explain how you
arrived at your estimate in sufficient detail to allow for it to be
reproduced
Provide specific examples to illustrate your concerns, and
suggest alternatives
Explain your views as clearly as possible, avoiding the use of
profanity or personal threats
Make sure to submit your comments by the comment period
deadline identified in the DATES section above
(3) How can I be sure that my comments were received?
NHTSA: If you submit your comments by mail and wish Docket
Management to notify you upon its receipt of your comments, enclose a
self-addressed, stamped postcard in the envelope containing your
comments. Upon receiving your comments, Docket Management will return
the postcard by mail.
(4) How do I submit confidential business information?
Any confidential business information (CBI) submitted to one of the
agencies will also be available to the other agency. However, as with
all public comments, any CBI information only needs to be submitted to
either one of the agencies' dockets and it will be available to the
other. Following are specific instructions for submitting CBI to either
agency. If you have any questions about CBI or the procedures for
claiming CBI, please consult the persons identified in the FOR FURTHER
INFORMATION CONTACT section.
EPA: Do not submit CBI to EPA through www.regulations.gov or email.
Clearly mark the part or all of the information that you claim to be
CBI. For CBI information in a disk or CD ROM that you mail to EPA, mark
the outside of the disk or CD ROM as CBI and then identify
electronically within the disk or CD ROM the specific information that
is claimed as CBI. Information not marked as CBI will be included in
the public docket without prior notice. In addition to one complete
version of the comment that includes information claimed as CBI, a copy
of the comment that does not contain the information claimed as CBI
must be submitted for inclusion in the public docket. Information so
marked will not be disclosed except in accordance with procedures set
forth in 40 CFR part 2.
NHTSA: If you wish to submit any information under a claim of
confidentiality, you should submit three copies of your complete
submission, including the information you claim to be confidential
business information, to the Chief Counsel, NHTSA, at the address given
above under FOR FURTHER INFORMATION CONTACT. When you send a comment
containing confidential business information, you should include a
cover letter setting forth the information specified in our
confidential business information regulation.\3\
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\3\ See 49 CFR part 512.
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In addition, you should submit a copy from which you have deleted
the claimed confidential business information to the Docket by one of
the methods set forth above.
(5) How can I read the comments submitted by other people?
You may read the materials placed in the docket for this document
(e.g., the comments submitted in response to this document by other
interested persons) at any time by going to http://www.regulations.gov.
Follow the online instructions for accessing the dockets. You may also
read the materials at the EPA Docket Center or NHTSA Docket Management
Facility by going to the street addresses given above under ADDRESSES.
C. Background
As part of the Climate Action Plan announced in June 2013,\4\ the
President directed the EPA and NHTSA to set the next round of standards
to reduce greenhouse gas (GHG) emissions and improve fuel efficiency
for medium- and heavy-duty vehicles and engines. More than 70 percent
of the oil used in the United States and 28 percent of GHG emissions
come from the transportation sector, and since 2009 EPA and NHTSA have
worked with industry and the State of California to develop ambitious,
flexible standards for both the fuel economy and GHG emissions of
light-duty vehicles and the fuel efficiency and GHG emissions of heavy-
duty vehicles and engines.5 6 Throughout every stage of
development for these programs, EPA and NHTSA (collectively, the
agencies, or ``we'') have worked in close partnership not only with
each other, but with the vehicle and engine manufacturing industries,
environmental community leaders, and the State of California, among
other entities, to create a single, effective set of national
standards.
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\4\ The White House, The President's Climate Action Plan (June,
2013). http://www.whitehouse.gov/share/climate-action-plan.
\5\ The White House, Improving the Fuel Efficiency of American
Trucks--Bolstering Energy Security, Cutting Carbon Pollution, Saving
Money and Supporting Manufacturing Innovation (Feb. 2014), 2.
\6\ U.S. Environmental Protection Agency. 2014. Inventory of
U.S. Greenhouse Gas Emissions and Sinks: 1990-2012. EPA 430-R-14-
003. Mobile sources emitted 28 percent of all U.S. GHG emissions in
2012. Available at http://www.epa.gov/climatechange/Downloads/ghgemissions/US-GHG-Inventory-2014-Main-Text.pdf
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The agencies' proposed Phase 2 standards (80 FR 40138, July 13,
2015) would phase in through model year
[[Page 10825]]
2027, and were intended to result in an ambitious, yet achievable
program that would allow manufacturers to meet standards through a mix
of different technologies at reasonable cost. The proposed Phase 2
program would build on and advance the model years 2014-2018 Phase 1
program in a number of important ways including: Basing standards not
only on currently available technologies but also on utilization of
technologies now under development or not yet widely deployed while
providing significant lead time to assure adequate time to develop,
test, and phase in these controls; developing standards for trailers;
further encouraging innovation and providing flexibility; including
vehicles produced by small business manufacturers; incorporating
enhanced test procedures that (among other things) allow individual
drivetrain and powertrain performance to be reflected in the vehicle
certification process; and using an expanded and improved compliance
simulation model.
This notice alerts the public to new information placed in the
agencies' public dockets, and solicits comment on that information. The
information takes the form of raw data, revised test reports, and
memoranda that in some instances indicate potential implications of the
data for purposes of standard stringency and implementation. In
addition to information placed into the docket by the agencies, EPA
also solicits comments on issues discussed in a late public comment
that addresses proposed regulations related to light-duty motor
vehicles used for racing. The agencies will accept comments on these
materials through April 1, 2016. The agencies will not address new
comments extraneous to these materials in the final rulemaking or its
associated documents.
D. Newly Docketed Materials on Which the Agencies Are Seeking Public
Comment
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EPA Docket No. NHTSA Docket No. Title Description
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EPA-HQ-OAR-2014-0827-1626.......... NHTSA-2014-0132-0181.. Greenhouse Gas A new release of the GEM
Emissions Model (GEM) simulation tool contains
P2v2.1. revisions that include
fixing bugs identified by
commenters; enhancements
to accommodate cycle
averaged fuel maps,
transmission efficiency
test results, and axle
efficiency test results;
refinements to the
transmission shifting
strategies; revised
vocational vehicle drive
cycle weightings; and a
revised road grade
profile. Details regarding
the revisions are included
in the summary file in the
docket entry.
EPA-HQ-OAR-2014-0827-1620.......... NHTSA-2014-0132-0182.. Default Gasoline EPA sponsored testing of a
Engine Fuel Map for heavy-duty gasoline engine
Use in GEM. at Southwest Research
Institute. Those results
were used to develop a new
default fuel map that
could be used to develop
the final spark-ignited
vocational vehicle
standards.
EPA-HQ-OAR-2014-0827-1622.......... NHTSA-2014-0132-0183.. Oak Ridge National EPA sponsored additional
Laboratory Powertrain testing on heavy-duty
Data. powertrains at Oak Ridge
National Laboratory. Cycle
results are presented from
two powertrain
configurations.
EPA-HQ-OAR-2014-0827-1619.......... NHTSA-2014-0132-0184.. Southwest Research EPA sponsored additional
Institute Program testing on two heavy-duty
Update on Cycle engines each with two
Average Mapping Data. different horsepower
ratings. Information
includes the cycle average
testing results and
findings are included.
EPA-HQ-OAR-2014-0827-1623.......... NHTSA-2014-0132-0185.. Final Southwest A pre-peer review draft
Research Institute version of this report was
Report to NHTSA: released in June of 2015.
Commercial Medium- Independent peer review
and Heavy-Duty Truck and public release of the
Fuel Efficiency draft report identified
Technology Study-- errors in the analysis in
Report #2. the draft report that were
corrected in this final
version.
EPA-HQ-OAR-2014-0827-1624.......... NHTSA-2014-0132-0186.. Supplemental EPA conducted additional
Aerodynamic Data from aerodynamic testing using
EPA Testing. the coastdown, constant
speed, wind tunnel, and
computational fluid
dynamics test procedures
since the NPRM was issued.
This docket entry includes
the raw data from each of
these test programs.
EPA-HQ-OAR-2014-0827-1621.......... NHTSA-2014-0132-0187.. Vocational Vehicle The National Renewable
Drive Cycle Data: Energy Laboratory (NREL)
Draft Report produced collaborated with EPA and
by the National conducted a vocational
Renewable Energy vehicle segmentation
Laboratory entitled evaluation based on NREL's
``The Development of Fleet DNA database. This
Vocational Vehicle analysis is intended to
Drive Cycles and inform the final
Segmentation''. vocational vehicle drive
cycle weightings.
EPA-HQ-OAR-2014-0827-1625.......... NHTSA-2014-0132-0188.. Additional Discussion Commenters raised concerns
of Selective about the proposed audit
Enforcement Audit and testing and the need for
Confirmatory Testing consideration of
for Aerodynamic compliance margins for the
Parameters. audit's results. The
memorandum provides
additional discussion of
how EPA's audits could be
conducted, and key
principles related to
these requirements.
[[Page 10826]]
EPA-HQ-OAR-2014-0827-1627.......... NHTSA-2014-0132-0189.. Legal Memorandum Draft legal memorandum
Discussing Issues discussing issues relating
Pertaining to to authority under the
Trailers, Glider Clean Air Act to
Vehicles, and Glider promulgate emission
Kits under the Clean standards for trailers and
Air Act. glider vehicles,
certification
responsibilities of
manufacturers of trailers
and glider kits, and
potential CO2 emission
standards for different
model year glider
vehicles.
EPA-HQ-OAR-2014-0827-1469-A1....... Not Applicable; this Public Comment from This comment addresses how
is in relation to an the Specialty a proposed amendment
EPA-specific section Equipment Market related to the Clean Air
of the NPRM. Association. Act's prohibition of
tampering of emission
controls would impact
light-duty vehicles used
for racing and raises
questions about whether
adequate notice was given
for this proposed
amendment.
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Issued under authority of 49 U.S.C. 32901, 32905, and 32906;
delegation of authority at 49 CFR 1.95.
Dated: February 24, 2016.
Raymond R. Posten,
Associate Administrator for Rulemaking, National Highway Traffic Safety
Administration.
Dated: February 24, 2016.
Christopher Grundler,
Director, Office of Transportation and Air Quality, Environmental
Protection Agency.
[FR Doc. 2016-04613 Filed 3-1-16; 8:45 am]
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