Approval and Promulgation of Air Quality Implementation Plans; Washington; Low Emission Vehicle Program |
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Michelle L. Pirzadeh
Environmental Protection Agency
18 August 2021
[Federal Register Volume 86, Number 157 (Wednesday, August 18, 2021)]
[Proposed Rules]
[Pages 46169-46173]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-17734]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[EPA-R10-OAR-2019-0574, FRL-8814-01-R10]
Approval and Promulgation of Air Quality Implementation Plans;
Washington; Low Emission Vehicle Program
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
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SUMMARY: The Environmental Protection Agency (EPA) is proposing to
approve a revision to the Washington State Implementation Plan (SIP)
pertaining to adoption by reference of a Low Emission Vehicle (LEV)
program by the State of Washington. The Clean Air Act (CAA) grants
authority to the EPA to adopt federal standards relating to the control
of emissions from new motor vehicles, and generally preempts states
from doing so. However, the CAA provides California the ability to
adopt and enforce its own new motor vehicle emission standards, as long
as the EPA approves California's standards via a preemption waiver. The
CAA also allows other states to adopt California's new motor vehicle
emission standards for which the EPA has granted such a waiver
providing other relevant criteria are met. Washington adopted
California's LEV emission standards in 2005, effective with new
vehicles sold in model year 2009. Washington subsequently amended its
new motor vehicle emissions program to incorporate California's LEV
updates to its program. The purpose of this SIP revision is to
implement programs to reduce vehicle emissions that contribute to
formation of ground level ozone and fine particulate matter. Washington
did not submit provisions related to greenhouse gas emissions from new
motor vehicles or zero-emission vehicles requirements for inclusion in
the SIP. The EPA is proposing to approve Washington's LEV SIP revision,
as it relates to criteria pollutants, in accordance with the
requirements of the CAA.
DATES: Comments must be received on or before September 17, 2021.
ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R10-
OAR-2019-0574 at https://www.regulations.gov. Follow the online
instructions for submitting comments. Once submitted, comments cannot
be edited or removed from Regulations.gov. The EPA may publish any
comment received to its public docket. Do not
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submit electronically any information you consider to be Confidential
Business Information (CBI) or other information whose disclosure is
restricted by statute. Multimedia submissions (audio, video, etc.) must
be accompanied by a written comment. The written comment is considered
the official comment and should include discussion of all points you
wish to make. The EPA will generally not consider comments or comment
contents located outside of the primary submission (i.e., on the web,
cloud, or other file sharing system). For additional submission
methods, the full EPA public comment policy, information about CBI or
multimedia submissions, and general guidance on making effective
comments, please visit https://www.epa.gov/dockets/commenting-epa-dockets.
FOR FURTHER INFORMATION CONTACT: Jeff Hunt, EPA Region 10, 1200 Sixth
Avenue--Suite 155, Seattle, WA 98101, at (206) 553-0256, or
hunt.jeff@epa.gov.
SUPPLEMENTARY INFORMATION: Throughout this document whenever ``we,''
``us,'' or ``our'' is used, it is intended to refer to the EPA.
Table of Contents
I. Background
A. What action is the EPA proposing?
B. Washington's Air Quality With Respect to the Federal National
Ambient Air Quality Standards for Ozone and Fine Particulate Matter
1. Washington Ozone Attainment Status
2. Washington Fine Particulate Matter Attainment Status
C. Federal Motor Vehicle Emission Standards
D. California LEV Program
E. Washington LEV Program
II. Summary of the September 2019 Washington LEV SIP Revision
III. The EPA's Proposed Action
IV. Incorporation by Reference
V. Statutory and Executive Order Reviews
I. Background
A. What action is the EPA proposing?
The EPA is proposing to approve a SIP revision submitted by
Washington on September 30, 2019 requesting inclusion of the state's
adopted and implemented California LEV standards as part of the
Washington SIP. None of Washington's LEV rules are currently in the
SIP. Under section 177 of the CAA, states with plan provisions approved
under CAA part D (such attainment or maintenance plans for ozone and
particulate matter described below) and other criteria in section 177
are met, may adopt California's standards in lieu of otherwise
applicable federal new motor vehicle emission standards.
Washington's LEV rules are applicable to subject, new motor
vehicles sold or titled in Washington beginning with model year 2009.
Subject vehicles include passenger cars, light duty trucks, and medium
duty passenger vehicles.\1\ Washington first adopted California LEV
standards as state regulation, Chapter 173-423 Washington
Administrative Code (WAC), in 2005 effective with the sale and titling
of new vehicles beginning in model year 2009. Washington did not submit
a request to the EPA to incorporate the program as a SIP revision at
the time. However, to strengthen the SIP particularly with respect to
ozone control, Washington formally submitted the state's LEV program
regulations to the EPA on September 30, 2019 for approval and inclusion
in the SIP. Further detail on Washington's LEV program is provided in
section I.E. of this preamble. We are proposing to approve Washington's
SIP revision because it will update the SIP with the current Washington
LEV rules, and because such LEV rules satisfy the criteria under
section 177 of the CAA.
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\1\ Effective June 11, 2020, the Washington State Legislature
modified the LEV program to include all medium duty vehicles
beginning with model year 2025 and adopted California's zero
emission vehicle standards. See Revised Code of Washington
70A.30.010. However, these recent statutory changes are not part of
the 2019 rule package submitted for approval at this time.
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B. Washington's Air Quality With Respect to the Federal National
Ambient Air Quality Standards for Ozone and Fine Particulate Matter
1. Washington Ozone Attainment Status
The CAA, as amended in 1990, requires the EPA to set National
Ambient Air Quality Standards (NAAQS) for ambient air pollutants
considered harmful to public health and the environment. The EPA
establishes NAAQS for six principal air pollutants, or ``criteria''
pollutants, which include: Ozone, carbon monoxide, lead, nitrogen
dioxide, particulate matter, and sulfur dioxide (SO2). The
CAA establishes two types of NAAQS. Primary standards provide public
health protection, including protecting the health of sensitive
populations such as asthmatics, children, and the elderly. Secondary
standards protect public welfare, including protection against
decreased visibility and damage to animals, crops, vegetation, and
buildings. The CAA also requires the EPA to periodically review the
standards to ensure that they provide adequate health and environmental
protection, and to update those standards as necessary.
Ozone is formed in the atmosphere by photochemical reactions
between ozone precursor pollutants, including volatile organic
compounds (VOCs) and nitrogen oxides (NOX) in the presence
of sunlight. In order to reduce ozone concentrations in the ambient
air, the CAA directs areas designated as nonattainment to apply
controls on VOC and NOX emission sources to reduce the
formation of ozone.
On November 6, 1991 (56 FR 56694), the EPA designated the Portland-
Vancouver area and the Seattle-Tacoma area as marginal nonattainment
under the 1979 1-hour ozone NAAQS. For the 1-hour ozone NAAQS,
attainment is defined when the expected number of days per calendar
year, with maximum hourly average concentration greater than 0.12 parts
per million (ppm) is equal to or less than 1. The EPA approved the
state's CAA section 175A maintenance plan for the Portland-Vancouver
area and redesignated the area to attainment on May 19, 1997 (62 FR
27204). Similarly, the EPA approved the state's CAA section 175A
maintenance plan for the Seattle-Tacoma area and redesignated the area
to attainment on September 26, 1996 (61 FR 50438). The EPA later
revoked the 1-hour ozone NAAQS effective June 15, 2005 (70 FR 44470).
The EPA did not designate any nonattainment areas in Washington for
subsequent updates to the ozone NAAQS, specifically designations for
the 1997 8-hour ozone NAAQS (84 FR 23857, April 30, 2004), the 2008
revision to the 8-hour ozone NAAQS (77 FR 30088, May 21, 2012), and the
2015 revision to the 8-hour ozone NAAQS (82 FR 54232, November 16,
2017). While there were no new ozone nonattainment areas designated in
the state, Washington generally adopts pro-active measures to prevent
nonattainment.
2. Washington Fine Particulate Matter Attainment Status
Fine particulate matter (PM2.5) can be emitted directly
or formed secondarily in the atmosphere. The main precursors of
secondary PM2.5 are SO2, NOX, ammonia,
and VOCs. Sulfates are a type of secondary particle formed from
SO2 emissions of power plants and industrial facilities.
Nitrates, another common type of secondary particle, are formed from
NOX emissions of power plants, automobiles, and other
combustion sources.
On July 18, 1997, the EPA promulgated the first air quality
standards for PM2.5 (62 FR 38652). The EPA promulgated
primary and secondary annual standards at a level of 15 micrograms per
cubic meter ([mu]g/m\3\),
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based on a 3-year average of annual mean PM2.5
concentrations. In the same rulemaking, EPA promulgated primary and
secondary 24-hour standards of 65 [mu]g/m\3\, based on a 3-year average
of the 98th percentile of 24-hour concentrations. All areas in
Washington met the 1997 PM2.5 standards, with all counties
classified as unclassifiable/attainment.
On October 17, 2006 (71 FR 61144), the EPA revised the
PM2.5 NAAQS, retaining the annual average NAAQS at 15 [mu]g/
m\3\ but revising the 24-hour NAAQS to 35 [mu]g/m\3\. On November 13,
2009 (74 FR 58688), the EPA designated the Tacoma area as nonattainment
for the 24-hour PM2.5 NAAQS. On February 10, 2015 (80 FR
7347), the EPA approved the CAA section 175A maintenance plan for the
Tacoma area and redesignated the area to attainment. Attainment was
achieved primarily through wood stove emission reduction measures.
However, projected declines in mobile source precursor emissions from
ongoing vehicle fleet turnover also played a role in demonstrating
continued attainment of the NAAQS.
Lastly, on January 15, 2013, the EPA promulgated a revised primary
annual PM2.5 NAAQS (78 FR 3086), strengthening the standard
from 15 [micro]g/m\3\ to 12 [micro]g/m\3\. Nonattainment area
designations for the 2012 primary annual PM2.5 standard were
published on January 15, 2015 (80 FR 2206), with all counties in
Washington classified as unclassifiable/attainment.
C. Federal Motor Vehicle Emission Standards
To reduce air pollution from motor vehicles, which contribute to
higher levels of ambient air pollution such as ozone and
PM2.5, motor vehicles sold in the United States are required
by the CAA to be certified to meet federal motor vehicle emission
standards. States are generally prohibited from adopting vehicle
standards, except for California, which was granted an exception by the
CAA to continue to issue its own vehicle emission standards. Section
209 of the CAA requires that, among other criteria for a waiver of
preemption, California must demonstrate to the EPA that its newly
adopted standards will be in the aggregate, at least as protective of
public health and welfare as applicable federal standards.
The CAA also authorizes other states to adopt California emission
standards for which the EPA has granted California such a waiver of
preemption. Under section 177 of the CAA, states with CAA part D
attainment or maintenance plans are authorized to adopt California's
standards in lieu of federal vehicle standards, provided they do so
with at least two model years lead time prior to the effective date of
the standards, and provided that the EPA has issued a waiver of
preemption to California for such standards.
D. California LEV Program
In 1990, California's Air Resources Board (CARB) adopted LEV
standards applicable to light and medium duty vehicles and phased in
beginning with model year 1994 vehicles. In 1999, California adopted a
second generation of LEV standards, known as LEV II, which were phased
in beginning model year 2004. The EPA waived federal preemption for
California's LEV II program on April 22, 2003 (68 FR 19811).
In 2012, California approved a new, more stringent LEV program
called the Advanced Clean Cars Program, or the LEV III program.
California codified the LEV III requirements for criteria pollutant
control in Title 13 of the California Code of Regulations, Division 3,
section 1961.2. The program was phased in beginning with vehicles
certified in model year 2015 and applied to light duty vehicles, light
duty trucks, and medium duty passenger vehicles. On June 9, 2013 (78 FR
2112), the EPA granted a federal preemption waiver for California's
Advanced Clean Cars Program.\2\
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\2\ We note that California's LEV III requirements for
greenhouse gas exhaust emission standards codified in sections
1961.1 and 1961.3 were not submitted for approval as part of
Washington's adoption by reference of the California LEV rules, nor
were provisions related to zero emission vehicles (ZEV).
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E. Washington LEV Program
In 2005, the Washington Legislature first adopted California's LEV
program under Revised Code of Washington (RCW) 70A.30.010. Washington's
adoption in 2005 applied to passenger cars, light duty trucks, and
medium duty passenger vehicles, excluding other medium duty vehicles
and California's ZEV requirements.\3\ The legislature directed the
Washington Department of Ecology (Ecology) to develop regulations
implementing the adoption of California's LEV program, which Ecology
codified in Chapter 173-423 Washington Administrative Code (WAC).
Chapter 173-423 WAC became effective December 31, 2005 and applied to
all 2009 and subsequent model years.\4\ However, Washington did not
submit the 2005 version of its LEV program regulations as a SIP
revision request to EPA at that time. Ecology subsequently amended its
LEV program regulations to incorporate by reference updates to the
applicable California's LEV program requirements codified in California
Code of Regulations Title 13, Division 3.\5\
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\3\ Effective June 11, 2020, the Washington State Legislature
modified the LEV program to include all medium duty vehicles
beginning with model year 2025 and adopted California's zero
emission vehicle standards. However, these recent statutory changes
are not part of the 2019 rule package submitted for approval at this
time.
\4\ See Washington State Register (WSR) 05-24-044 included in
the docket for this action.
\5\ See WSR 09-03-077, 12-24-033, 16-12-099, and 19-02-056
included in the docket.
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II. Summary of the September 2019 Washington LEV SIP Revision
On September 30, 2019, Washington submitted a SIP revision
requesting that the EPA amend the SIP to incorporate the state LEV
requirements under Chapter 173-423 WAC. Washington's LEV program
includes California's LEV III standards for criteria pollutant control,
which Ecology first incorporated by reference on November 28, 2012,
effective December 29, 2012.\6\ Under section 177 of the CAA, states
with CAA Part D attainment or maintenance plans, such as Washington,
may adopt California's standards in lieu of federal vehicle standards,
provided they do so with at least two model years lead time prior to
the effective date of the standards, and provided that the EPA has
issued a waiver of preemption to California for such standards. As
noted above, Washington adopted the California LEV standards in 2005
applying to model year 2009 vehicles, meeting the two-year lead time
requirement under section 177 of the CAA. As discussed above, the
California LEV II standards adopted by Washington in 2005 had already
received an EPA federal preemption waiver in 2003. Therefore,
Washington met all CAA section 177 requirements for initial adoption of
the California LEV standards. Subsequent updates, such as adoption of
California's LEV III, which also received a federal preemption waiver,
also met the two-model year lead time requirement. Since the adoption
of California's LEV III program in 2012, there have been no major
changes to Washington's LEV program for criteria pollutants; however,
Ecology has periodically updated the incorporation by reference in
Chapter 173-423 WAC to maintain consistency with the California motor
vehicle emission standards.
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\6\ See WSR 12-24-033 included in the docket.
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Washington submitted, and the EPA is proposing to approve and
incorporate by reference into the SIP, Chapter 173-
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423 Low Emission Vehicles with one important caveat. Washington did not
submit provisions related to California's greenhouse gas motor vehicle
emission standards.\7\ A strikeout version of Chapter 173-423 WAC with
the greenhouse gas provisions excluded from our proposed approval is
included in the docket for this action.\8\ These exclusions are also
noted in the table of regulations proposed for approval in section III.
of this preamble. Lastly, as discussed in section I.E. of this
preamble, Chapter 173-423 WAC does not include California's zero
emission vehicle requirements.\9\
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\7\ See National Ambient Air Quality Standards: Infrastructure
State Implementation Plan for 2015 Ozone and 2010 Sulfur Dioxide,
Appendix B.
\8\ See 301_proposed IBR_Chapter 173-423 WAC_strike through.pdf.
\9\ On May 10, 2021, Ecology announced intent to start
rulemaking to revise Chapter 173-423 WAC to include zero emission
vehicles for passenger cars, light duty trucks, and medium duty
vehicles; zero emission vehicles for medium and heavy duty trucks
(Advanced Clean Trucks); and low emission vehicle requirements for
medium duty vehicles.
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III. The EPA's Proposed Action
As previously noted, under section 177 of the CAA, states with CAA
part D attainment or maintenance plans, such as Washington, are
authorized to adopt California's standards in lieu of federal vehicle
standards. Washington first adopted the California standards effective
December 31, 2005; however, the state did not submit the LEV rules for
approval in the SIP at the time. In 2019, Washington submitted the LEV
rules to strengthen the SIP with respect to ozone control statewide,
including current maintenance areas.\10\ We are proposing to approve
Washington's request because it meets the requirements of section 177
of the CAA. Specifically, the EPA is proposing to approve and
incorporate by reference into the Washington SIP at 40 CFR 52.2470(c),
Table 1--Regulations Approved Statewide, the regulations listed in the
table below.
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\10\ See 102_state submittal_2018 ISIP for 2015 03 and 2010 S02
NAAQS included in the docket for this action.
Washington Administrative Code, Chapter 173-423--Low Emission Vehicles
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State
State citation Title/subject effective date Explanation
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173-423-010............................. Purpose................... 12/29/12
173-423-020............................. Applicability............. 12/31/05
173-423-025............................. Effective Date............ 12/31/05
173-423-030............................. Incorporation by Reference 12/31/05
173-423-040............................. Definitions and 12/29/12 Except 173-423-040(3).
Abbreviations.
173-423-050............................. Requirement to Meet 12/29/12 Except 173-423-050(2)(g).
California Vehicle
Emission Standards.
173-423-060............................. Exemptions................ 12/29/12
173-423-070............................. Emission Standards, 1/27/19 Except the incorporation
Warranty, Recall and by reference of
Other California California code sections
Provisions Adopted by 1961.1 and 1961.3.
Reference.
173-423-080............................. Fleet Average Nonmethane 12/29/12
Organic Gas (NMOG) and
NMOG Plus NOX Exhaust
Emission Requirements,
Reporting and Compliance..
173-423-100............................. Manufacturer Delivery 12/29/12
Reporting Requirements.
173-423-110............................. Warranty Requirements..... 12/29/12
173-423-120............................. Recalls................... 12/29/12
173-423-130............................. Surveillance.............. 12/31/05
173-423-140............................. Enforcement............... 12/31/05
173-423-150............................. Severability.............. 12/31/05
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IV. Incorporation by Reference
In this document, the EPA is proposing to include in a final rule,
regulatory text that includes incorporation by reference. In accordance
with requirements of 1 CFR 51.5, the EPA is proposing to incorporate by
reference the regulations shown in section III of this preamble. The
EPA has made, and will continue to make, these documents generally
available through https://www.regulations.gov and at the EPA Region 10
Office (please contact the person identified in the FOR FURTHER
INFORMATION CONTACT section of this preamble for more information).
V. 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, the EPA's role is to approve state
choices, provided that they meet the criteria of the Clean Air Act.
Accordingly, this proposed action merely approves state law as meeting
federal requirements and does not impose additional requirements beyond
those imposed by state law. For that reason, this proposed action:
Is not a ``significant regulatory action'' subject to
review by the Office of Management and Budget under Executive Orders
12866 (58 FR 51735, October 4, 1993) and 13563 (76 FR 3821, January 21,
2011);
Does not impose an information collection burden under the
provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);
Is certified as not having a significant economic impact
on a substantial number of small entities under the Regulatory
Flexibility Act (5 U.S.C. 601 et seq.);
Does not contain any unfunded mandate or significantly or
uniquely affect small governments, as described in the Unfunded
Mandates Reform Act of 1995 (Pub. L. 104-4);
Does not have Federalism implications as specified in
Executive Order 13132 (64 FR 43255, 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);
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Is not subject to requirements of Section 12(d) of the
National Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272
note) because application of the requirements would be inconsistent
with the Clean Air Act; and
Does not provide the EPA with the discretionary authority
to address, as appropriate, disproportionate human health or
environmental effects, using practicable and legally permissible
methods, under Executive Order 12898 (59 FR 7629, February 16, 1994).
The SIP is not approved to apply on any Indian reservation land in
Washington except as specifically noted below and is also not approved
to apply in any other area where the EPA or an Indian tribe has
demonstrated that a tribe has jurisdiction. In those areas of Indian
country, the proposed rule does not have tribal implications and will
not impose substantial direct costs on tribal governments or preempt
tribal law as specified by Executive Order 13175 (65 FR 67249, November
9, 2000). Washington's SIP is approved to apply on non-trust land
within the exterior boundaries of the Puyallup Indian Reservation, also
known as the 1873 Survey Area. Under the Puyallup Tribe of Indians
Settlement Act of 1989, 25 U.S.C. 1773, Congress explicitly provided
state and local agencies in Washington authority over activities on
non-trust lands within the 1873 Survey Area. Consistent with EPA
policy, the EPA provided a consultation opportunity to the Puyallup
Tribe, and other tribes located in Washington, in a letter dated July
15, 2019.
List of Subjects in 40 CFR Part 52
Environmental protection, Air pollution control, Carbon monoxide,
Incorporation by reference, Intergovernmental relations, Lead, Nitrogen
dioxide, Ozone, Particulate matter, Reporting and recordkeeping
requirements, Sulfur oxides, Volatile organic compounds.
Dated: August 12, 2021.
Michelle L. Pirzadeh,
Acting Regional Administrator, Region 10.
[FR Doc. 2021-17734 Filed 8-17-21; 8:45 am]
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