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Federal Register / Vol. 86, No. 183 / Friday, September 24, 2021 / Proposed Rules continue to reduce emissions of NOX
and direct PM2.5.159 Specifically, Table 41 of the 2018 PM2.5 Plan identifies 33
District measures that limit NOX and direct PM2.5 emissions.160 The EPA has approved each of the identified measures into the California SIP,161
with two exceptions.
First, the District amended Rule 4905
Natural Gas-fired, Fan-type, Residential Central Furnaces on October 15, 2020, to extend the period during which manufacturers may pay emissions fees in lieu of meeting the rules NOX emissions limits.162 CARB
submitted the amended rule to the EPA
on December 30, 2020,163 and the EPA
has not yet proposed any action on this submission. The EPA approved a prior version of Rule 4905 into the California SIP on March 29, 2016.164 As part of that rulemaking, the EPA noted that because of the option in Rule 4905 to pay mitigation fees in lieu of compliance with emissions limits, emissions reductions associated with the rules emissions limits would not be creditable in any attainment plan without additional documentation.165
Until the District submits the necessary documentation to credit emissions reductions achieved by Rule 4905
toward an attainment control strategy, this rule is not creditable for SIP
purposes. The Plan indicates that the District attributed 0.06 tpd of NOX
reductions between 2013 and 2020 to Rule 4905.166 These emissions reductions have de minimis impacts on the attainment demonstration for the 1997 24-hour PM2.5 NAAQS in the SJV
PM2.5 Plan.
159 2018 PM
2.5 Plan, Chapter 4, 43. For the Districts BACM analysis of stationary and area source measures, see 2018 PM2.5 Plan, Appendix C.
160 2018 PM
2.5 Plan, Chapter 4, Table 41.
161 See EPA Region IXs website for information on District control measures that have been approved into the California SIP, available at:
https www.epa.gov/sips-ca/epa-approved-sanjoaquin-valley-unified-air-district-regulationscalifornia-sip.
162 SJVUAPCD, Final Draft Staff Report with Appendix for Proposed Amendments to Rule 4905, Adopt Proposed Amendments to Rule 4905
Natural Gas-fired, Fan-type Central Furnaces, 2.
163 Letter dated December 28, 2020, from Richard W. Corey, Executive Officer, CARB, to John Busterud, Regional Administrator, EPA Region 9.
CARBs submittal letter formally withdrew a previously amended version of Rule 4905 adopted by the District on June 21, 2018 and submitted to the EPA by CARB on November 21, 2018.
164 81 FR 17390 March 29, 2016 approving Rule 4905 as amended January 22, 2015.
165 EPA, Region IX Air Division, Technical Support Document for EPAs Proposed Rulemaking for the California State Implementation Plan SIP, San Joaquin Valley Unified Air Pollution Control Districts Rule 4905, Natural Gas-Fired, Fan-Type Central Furnaces, October 5, 2015, n. 8.
166 2018 PM
2.5 Plan, Appendix C, C290.

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Second, the 2018 PM2.5 Plan lists Rule 4203 Particulate Matter Emissions from Incineration of Combustible Refuse as a baseline measure. This rule has not been approved into the California SIP.167 Appendix C of the 2018 PM2.5 Plan indicates, however, that the emissions inventory for incineration of combustible refuse is 0.00 tpd of NOX
and 0.00 direct PM2.5 from 2013 through 2020.168 Thus, although the District included this rule as a baseline measure, there are no meaningful reductions associated with this rule that would affect the attainment demonstration in the SJV PM2.5 Plan.
In sum, although Table 41 of the 2018 PM2.5 Plan identifies two baseline measures that are not creditable for SIP
purposes at this time, we find that the total emissions reductions attributed to these measures in the future baseline inventories have de minimis effects on the attainment demonstration in the Plan.
b. Best Available Control Measures We are evaluating the States BACM
demonstration for the 1997 24-hour PM2.5 NAAQS against the section 189b1B Serious area plan BACM
requirement, and the section 189d plan requirement to address all Serious area plan requirements that the State has not already met. Because we have already found that the State failed to attain the 1997 24-hour PM2.5 NAAQS
in the San Joaquin Valley area by the Serious area attainment date, and because we have not previously found that the state has met the BACM
requirement for purposes of the 1997
24-hour PM2.5 NAAQS, we are evaluating the States submission against the Serious area BACM
requirement in light of the section 189d control plan timeline. The States BACM demonstration is presented in Appendix C Stationary Source Controls and Appendix D Mobile Source Control Measure Analyses of the 2018 PM2.5 Plan.169 As discussed in section IV.A of this proposed rule, Appendix B Emissions Inventory of the 2018 PM2.5 Plan contains the planning inventories for direct PM2.5
and all PM2.5 precursors NOX, SOX, VOC, and ammonia for the San Joaquin 167 The EPA does not have any pending SIP
submission for Rule 4203.
168 2018 PM
2.5 Plan, Appendix C, C46.
169 Appendices C and D also present an MSM
analysis for the purposes of meeting a precondition for an extension of the Serious area attainment date under CAA section 188e for the 2006 PM2.5
NAAQS. The San Joaquin Valley area is not subject to the MSM requirement for the 1997 24-hour PM2.5
NAAQS. Thus, the EPA is evaluating the Plans control strategy for implementation of BACM and BACT only.

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Valley nonattainment area together with documentation to support these inventories. Each inventory includes emissions from stationary, area, on-road, and non-road emissions sources, and the State specifically identifies the condensable component of direct PM2.5
for relevant stationary source and area source categories. As discussed in section IV.B of this proposed rule, the State concludes that the Plan should control emissions of PM2.5 and NOX to reach attainment. Accordingly, the BACM and BACT evaluation in the Plan addresses potential controls for sources of those pollutants.
For stationary and area sources, the District identifies the sources of direct PM2.5 and NOX in the San Joaquin Valley that are subject to District emissions control measures and provides its evaluation of these regulations for compliance with BACM
requirements in Appendix C of the 2018
PM2.5 Plan. As part of its process for identifying candidate BACM and considering the technical and economic feasibility of additional control measures, the District reviewed the EPAs guidance documents on BACM, additional guidance documents on control measures for direct PM2.5 and NOX emissions sources, and control measures implemented in other ozone and PM2.5 nonattainment areas in California and other states.170 The District also provides an analysis of several SIP-approved VOC regulations that, according to the District, also provide ammonia co-benefits.171 Based on these analyses, the District concludes that all best available control measures for stationary and area sources are in place in the San Joaquin Valley for NOX
and directly emitted PM2.5 for purposes of meeting the BACM/BACT
requirement for the 1997 24-hour PM2.5
NAAQS. We provide an evaluation of many of the Districts control measures for stationary sources and area sources in section III of the EPAs 1997 24-hour PM2.5 TSD together with recommendations for possible future improvements to these rules.
For mobile sources, CARB identifies the sources of direct PM2.5 and NOX in the San Joaquin Valley that are subject to the States emissions control measures and provides its evaluation of these regulations for compliance with BACM requirements in Appendix D of the 2018 PM2.5 Plan. Appendix D
describes CARBs process for determining BACM, including identification of the sources of direct PM2.5 and NOX in the San Joaquin 170 2018
171 2018

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PM2.5 Plan, Chapter 4, section 4.3.1.
PM2.5 Plan, Appendix C., section C.25.

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