[Federal Register Volume 66, Number 166 (Monday, August 27, 2001)]
[Rules and Regulations]
[Pages 44978-44981]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 01-21440]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 60
[FRL-7039-2]
Amendments for Testing and Monitoring Provisions; Removal of a
Provision for Opacity Monitoring
AGENCY: Environmental Protection Agency (EPA).
ACTION: Direct final rule.
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SUMMARY: We, the EPA, are taking direct final action to remove an
amendment published as part of a final rule entitled ``Amendments for
Testing and Monitoring Provisions'' on October 17, 2000 (65 FR 61744).
We are removing this provision because it inadvertently established
substantive new requirements for facilities that are subject to the New
Source Performance Standards requiring the installation of continuous
opacity monitors on effluent streams, although the amendments were
explicitly intended to be minor in nature and not substantive.
DATES: Effective Date. This final rule amendment is effective on
October 11, 2001 without further notice, unless we receive adverse
comments on this direct final rule by September 26, 2001. If we receive
timely adverse comments or a timely hearing request, we will publish a
withdrawal in the Federal Register informing you, the public, that this
direct final rule will not take effect.
ADDRESSES: Comments. You may submit comments on this rulemaking in
writing (original and two copies, if possible) to Docket No. A-97-12 at
the following address: Air and Radiation Docket and Information Center
(6102), US Environmental Protection Agency, 401 M Street, SW., Room
1500, Washington, DC 20460.
Docket. A docket containing supporting information used in
developing this direct final rule amendment is available for public
inspection and copying at our docket office located at the above
address in Room M-1500, Waterside Mall (ground floor). You are
encouraged to phone in advance to review docket materials. To schedule
an appointment, call the Air Docket Office at (202) 260-7548. Refer to
Docket No. A-97-12. The Docket Office may charge a reasonable fee for
copying docket materials.
FOR FURTHER INFORMATION CONTACT: Foston Curtis, Environmental
Protection Agency, Office Air Quality Planning and Standards, at 919/
541-1063, e-mail: [email protected], facsimile 919/541-1039.
SUPPLEMENTARY INFORMATION:
Outline. The information in this preamble is organized as follows:
I. Background
II. Authority
III. Administrative Requirements
A. Executive Order 12866: ``Significant Regulatory Action
Determination'
B. Regulatory Flexibility
C. Paperwork Reduction Act
D. Unfunded Mandates Reform Act
E. Docket
F. Executive Order 13132: Federalism
G. Executive Order 13045: Protection of Children From
Environmental Health Risks and Safety Risks
H. Executive Order 13175: Consultation and Coordination With
Indian Tribal Governments
I. Submission to Congress and the General Accounting Office
J. National Technology Transfer and Advancement Act
K. Executive Order 13211 (Energy Effects)
I. Background
On October 17, 2000 (65 FR 61744), we published a notice of final
rulemaking to adopt a number of changes to the test methods listed in
40 CFR parts 60, 61, and 63. As the preamble to the final rule
explained, these changes were largely intended to be minor,
nonsubstantive revisions and represented, in effect, a ``housekeeping''
effort to correct typographical and technical errors, and eliminate
obsolete or no longer applicable material. In addition, we promulgated
Performance Specification 15, which contains criteria for certifying
continuous emission monitoring systems (CEMS) that use fourier
transform infrared spectroscopy, and we changed the outline of the test
methods and CEMS performance specifications already listed in parts 60,
61, and 63 to fit a new format recommended by the Environmental
Monitoring Management Council. The editorial changes and technical
corrections were intended to update the rules and help maintain their
original intent.
The amendment made to Sec. 60.13(g) which is affected by today's
action applies to facilities that are subject to New Source Performance
Standards (NSPS) and are required to install continuous opacity
monitors on effluent streams. Specifically, the amendment provides that
when the effluents from two or more affected facilities subject to the
same opacity standard are combined into a single stack, and if opacity
is monitored on each stream, a combiner system comprised of opacity and
flow monitoring systems must be installed. In this case, gas flow rates
from the individual streams must be known to correct the measured
opacity to the exit stack dimensions and therefore must be measured. By
contrast, preamended Sec. 60.13(g) only implied, but did not explicitly
require, that flow measurements from the individual streams were
necessary. The intent of the amendment was to explicitly require such
flow measurements and to identify what we perceived to be the most
commonly used method of doing that (namely, the use of flow monitors).
However, during the public comment period, some members of the utility
industry objected to our specifying flow monitors as the only option
and suggested that other indicators of flow
[[Page 44979]]
rate they had traditionally employed (e.g., unit load, fan motor ampere
readings, damper settings, etc.) should continue to be allowed. Because
we did not anticipate the industry having to make substantive changes
from its current practices to implement the amendments, we promulgated
the amended Sec. 60.13(g) without fully responding to the industry's
comments in the preamble to the final rule. After further
consideration, we have concluded that the amendment constitutes a
substantive change in the original rule since it requires subject
facilities to install flow monitors instead of allowing them to
continue to use flow indicator methods. Moreover, we did not raise the
question of adequacy of such methods in the previous rulemaking and no
commenter has presented information indicating that they do not provide
adequate measurements of flow rates for the purposes of the NSPS
monitoring requirements. This removal of the amendment will reinstate
the old Sec. 60.13(g) provision which allowed subject facilities to use
flow measuring techniques besides flow monitors.
II. Authority
The statutory authority for this action is 42 U.S.C. 7401, 7411,
7413, 7414, 7416, 7601, and 7602.
III. Administrative Requirements
A. Executive Order 12866: ``Significant Regulatory Action
Determination''
Under Executive Order 12866 (58 FR 51735, October 4, 1993), we must
determine whether the regulatory action is ``significant'' and
therefore subject to Office of Management and Budget (OMB) review and
the requirements of the Executive Order. The Order defines
``significant regulatory action'' as one that is likely to result in a
rule that may:
(1) Have an annual effect on the economy of $100 million or more or
adversely affect in a material way the economy, a sector of the
economy, productivity, competition, jobs, the environment, public
health or safety in State, local, or tribal governments or communities;
(2) Create a serious inconsistency or otherwise interfere with an
action taken or planned by another agency;
(3) Materially alter the budgetary impact of entitlement, grants,
user fees, or loan programs of the rights and obligations of recipients
thereof; or
(4) Raise novel legal or policy issues arising out of legal
mandates, the President's priorities, or the principles set forth in
the Executive Order.
Because this rule merely removes an amendment to, and reinstates
the prior provisions of 40 CFR 60.13(g), EPA has determined that this
action is not a ``significant regulatory action'' under the terms of
Executive Order 12866 and is therefore not subject to OMB review.
Executive Order 12866 also encourages agencies to provide a meaningful
public comment period, and suggests that in most cases the comment
period should be 60 days. However, in consideration of the very limited
and remedial scope of this amendment, we consider 30 days to be
sufficient in providing a meaningful public comment period, if
requested, for this rulemaking.
B. Regulatory Flexibility
The Regulatory Flexibility Act (RFA) requires us 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.
The EPA has determined that removing the 40 CFR 60.13(g) amendment will
not have a significant impact on a substantial number of small
entities. Therefore, a regulatory flexibility analysis is not necessary
in connection with this action.
C. Paperwork Reduction Act
Because this action does not include or create any information
collection activities subject to the Paperwork Reduction Act, the
Paperwork Reduction Act, 44 U.S.C. 3501, et seq., does not apply.
D. Unfunded Mandates Reform Act
Title II of the Unfunded Mandates Reform Act of 1995 (UMRA), Public
Law 104-4, establishes requirements for Federal agencies to assess the
effects of their regulatory actions on State, local, and tribal
governments and the private sector. Under section 202 of the UMRA, we
must prepare a written statement, including a cost-benefit analysis,
for proposed and final rules with ``Federal mandates'' that may result
in expenditures to State, local, and tribal governments, in the
aggregate, or to the private sector, of $100 million or more in any one
year. Before we promulgate a rule for which a written statement is
needed, section 205 of the UMRA requires us to identify and consider a
reasonable number of regulatory alternatives and adopt the least
costly, most cost-effective or least burdensome alternative that
achieves the objectives of the rule. The provisions of section 205 do
not apply when they are inconsistent with applicable law. Moreover,
section 205 allows us to adopt an alternative other than the least
costly, most cost-effective or least burdensome alternative if the
Administrator publishes with the final rule an explanation of why that
alternative was not adopted. Before we establish any regulatory
requirements that may significantly or uniquely affect small
governments, including tribal governments, we must have developed under
section 203 of the UMRA a small government agency plan. That plan must
provide for notifying potentially affected small governments, enabling
officials of affected small governments to have meaningful and timely
input in the development of regulatory proposals with significant
Federal intergovernmental mandates, and informing, educating, and
advising small governments on compliance with the regulatory
requirements.
This action contains no regulatory requirements that might
significantly or uniquely affect small governments. This action does
not contain a Federal mandate that may result in expenditures of $100
million or more for State, local, and tribal governments, in the
aggregate, or the private sector in any one year. Thus, today's action
is not subject to the requirements of sections 202 and 205 of the UMRA.
E. Docket
The docket includes an organized and complete file of all the
information upon which we relied in taking this direct final action.
The docketing system is intended to allow you to identify and locate
documents readily so that you can participate effectively in the
rulemaking process. Along with the proposed and promulgated standards
and their preambles, the contents of the docket, except for certain
interagency documents, will serve as the record for judicial review.
(See CAA section 307(d)(7)(A).)
F. Executive Order 13132: Federalism
Executive Order 13132, entitled ``Federalism'' (64 FR 43255, August
10, 1999), requires us 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.''
[[Page 44980]]
Under Section 6 of Executive Order 13132, we 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 we consult
with State and local officials early in the process of developing the
proposed regulation. We also may not issue a regulation that has
federalism implications and that preempts State law, unless we consult
with State and local officials early in the process of developing the
proposed regulation.
This action does not have federalism implications. The 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. Today's action does not create a
mandate on State, local or tribal governments. This action does not
impose any new or additional enforceable duties on these entities.
Thus, the requirements of section 6 of the Executive Order do not apply
to this rule.
G. Executive Order 13045: Protection of Children From Environmental
Health Risks and Safety Risks
Executive Order 13045 applies to any rule that the EPA determines
(1) is economically significant as defined under Executive Order 12866,
and (2) that the environmental health or safety risk addressed by the
rule has 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
removal action is not subject to Executive Order 13045, entitled
Protection of Children from Environmental Health Risks and Safety Risks
(62 FR 19885, April 23, 1997), because it is not an economically
significant regulatory action as defined by Executive Order 12866, and
the action does not address an environmental health or safety risk that
would have a disproportionate effect on children.
H. Executive Order 13175, Consultation and Coordination With Indian
Tribal Governments
Executive Order 13175, entitled ``Consultation and Coordination
with Indian Tribal Governments'' (65 FR 67249, November 6, 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.'' ``Policies that have tribal
implications'' is defined in the Executive Order to include regulations
that have ``substantial direct effects on one or more Indian tribes, on
the relationship between the Federal government and the Indian tribes,
or on the distribution of power and responsibilities between the
Federal government and Indian tribes.''
This rule does not have tribal implications. 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, as specified in Executive Order 13175.
Thus, Executive Order 13175 does not apply to this rule.
I. Submission to Congress and the General Accounting Office
The Congressional Review Act, 5 U.S.C. 801 et seq., added by the
Small Business Regulatory Enforcement Fairness Act of 1996, generally
provides that before a rule may take effect, the agency promulgating
the rule must submit a rule report, which includes a copy of the rule,
to each House of Congress and to the Comptroller General of the United
States. We will submit a report containing this rule and other required
information to the U.S. Senate, the U.S. House of Representatives, and
the Comptroller General of the United States before it is published in
the Federal Register. This action is not a ``major rule'' as defined by
5 U.S.C. 804(2). This rule will be effective October 11, 2001.
J. National Technology Transfer and Advancement Act
Under section 12(d) of the National Technology Transfer and
Advancement Act (NTTAA), Public Law 104-113 (March 7, 1996), we are
required to use voluntary consensus standards in our regulatory and
procurement activities unless to do so would be inconsistent with
applicable law or otherwise impractical. Voluntary consensus standards
are technical standards (e.g., materials specifications, test methods,
sampling procedures, business practices, etc.) which are adopted by
voluntary consensus standard bodies. Where we do not use available and
potentially applicable voluntary consensus standards, the NTTAA
requires us to provide Congress, through OMB, an explanation of the
reasons for not using such standards. This action does not involve
technical standards. The purpose of today's action is to remove
portions of a rule, reinstating previous provisions, and not to impose
new substantive requirements or to adopt new technical standards.
Consequently, the requirements of NTTAA do not apply.
K. Executive Order 13211 (Energy Effects)
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.
List of Subjects in 40 CFR Part 60
Environmental protection, Administrative practice and procedure,
Air pollution control, Continuous emission monitors.
Dated: August 14, 2001.
Christine Todd Whitman,
Administrator.
For the reasons stated in the preamble, The Environmental
Protection Agency amends title 40, chapter I of the Code of Federal
Regulations as follows:
PART 60--STANDARDS OF PERFORMANCE FOR NEW STATIONARY SOURCES
1. The authority citation for Part 60 continues to read as follows:
Authority: 42 U.S.C. 7401, 7411, 7413, 7414, 7416, 7601, and
7602.
Sec. 60.13 [Amended]
2. Section 60.13 is amended by revising paragraph (g) to read as
follows:
Sec. 60.13 Monitoring requirements.
* * * * *
(g) When the effluents from a single affected facility or two or
more affected facilities subject to the same emission standards are
combined before being released to the atmosphere, the owner or operator
may install applicable continuous monitoring systems on each effluent
or on the combined effluent. When the affected facilities are not
subject to the same emission standards, separate continuous monitoring
systems shall be installed on each effluent. When the effluent from one
affected facility is released to the atmosphere through more than one
point, the owner or operator shall install an applicable continuous
monitoring system on each separate effluent unless the installation
[[Page 44981]]
of fewer systems is approved by the Administrator. When more than one
continuous monitoring system is used to measure the emissions from one
affected facility (e.g., multiple breechings, multiple outlets), the
owner or operator shall report the results as required from each
continuous monitoring system.
* * * * *
[FR Doc. 01-21440 Filed 8-24-01; 8:45 am]
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