BEFORE THE ILLINOIS POLLUTION CONTROL BOARD
IN
THE MATTER OF:
EMEHGENCY
RULE AMENDING THE
STAGE" GASOLINE VAPOR RECOVERY
RULE
IN
THE METRO-EAST AREA,
35 ILL. ADM. CODE 219.586(d).
TO:
Dorothy Gunn, Clerk
Illinois Pcllution Control Board
State of Illinois Center
100 w.
Ra~dolph,
Suite
11-500
Chicago, Illinois 60601
Bill
Denham
Research &
Planning
Energy
&
Natural Resources
325 W. Adams
Springfield,
Il 62704
NOTICE
R93-
i 7-
Rulemaking
Matthew
J.
Dunn, Chief
Environmental Control Division
Office of the Attorney General
100 W.
Randolph St., 12th Floor
Chicago, Il
60601
PLEASE TAKE
NOTICE
that I have today filed with the Office of the Clork of the
Pollution Control Board the Motion for Board to File Emergency Rule of the Illinois
Environmental Protection Agency, a copy of which is herewith served upon you.
ENVIRONMENTAL PROTECTION AGENCY
OF
THE STATE OF ILLINOIS
By:
Rachel L. Doctors
Assistant Counsel
Division of legal Counsel
DATED: Mai
;OJ,
1993
P.O. Box 19276
Springfield, Illinois 62'194-9276
217/524-3333
THIS FILING IS SUBMITTED
ON RECYCLED PAPER
'. .
-
.
',: -'./<0"- >-."',
}
) SS.
COUNTYOFSANGAMON )
PROOF OF SERVICE
I,
the undersigned, on oath state that I have served the attached Motion for Board
to File Emergency Rule upon the person to whom it is directed, by placing a copy in an
envelope addressed
to:
Dorothy Gunn,
C/ed~
Illinois Pollution Control Board
State of Illinois Center
100 W. Randolph, Suite 11-500
Ch:cago,
Illinois
60601
Bill Denham
Research
&
Planning
Energy
&
Natural
Resources
325 W. Adams
Springfield,
IL 62704
Matthew
J.
Dunn, Chief
Environmental Control Division
Office of the Attorney General
100 W. Randolph St., 12th Floor
Chicago,
IL 60601
and mailing it by first class
mail
from Springfield,
Illinois
on May 10, 1993 with sufficient
postage affixed.
i
C£n'}
L/}1A.-O
crL=v\.)
SUBSCRIBED AND SWORN TO BEFORE ME
this 10th day of May, 1993
~ 1rl.~'(A
Notary Public
-U-
"OFFICIAL
S~AL"
ANN M.
ZWICK
NOt6ry
Public. State
of Illinois
My
CommISSion Expires Jan.
31. 1995
BEFORE THE ILLINOIS POLLUTION CONTROL SIDlAlRfD
IN THE MATTER OF:
EMERGENCY RULE AMENDING THE
STAGE II GASOLINE VAPOR RECOVERY
RULE IN THE METRO-EAST AREA,
35
ILl. ADM. CODE 219.586(d).
Rulemaking
R93-
12
NOTICE
TO:
Dorothy Gunn, Clerk
Illinois Pollution Control Board
State of Illinois Cer.ter'
100
W.
Randolph, Suite 11-500'
Chicago, Illinois 60601
PLEASE TAKE NOTICE that I have today filed with the Office of the Clerk of the
Pollution
Control Board the Motion for Board tQ File Emergency Rule of
tho
Illinois
Environmental Protection
Agency, a copy of which is herewith served upon you.
ENVIRONMENTAL PROTECTION AGENCY
OF THE STATE OF ILLIN
By:
DATED:
April 30, 1993
P.O. Box 19276
Springfield, Illinois 112794-9276
217/524-3333
THIS
FILING IS SUBMITTED
ON
RECYCLED PAPER
ro'rn©§
ow~rffi
W
MAY-3~
1W
STATE C III I
POLLUTION CON mOL BOARD
BEFORE THE ILLINOiS POLLUTION CONTROL BOARD
IN THE MATTER OF:
EMERGENCY RULE
AMENDING
THE
STAGE
II
GASULINE
VAPOR
RECOVERY
RULE IN THE METRO-EAST AREA,
35
ILL. ADM. CODE
219.586(d).
R93-
I~
(Rulemaking)
MOTION FOR BOARD TO FILE EMERGENCY RULE
NOW COMES the Illinois Environmental Protection Agency by its attorney, Rachel
L.
Doctors, and moves the Board to file an emergency rule with the Secretary of State delaying
the
complianco date of 35 Ill. Adm. Code 219.586(d). In support of its Motion, the Agency
states as
follows:
1.
The Metro-East area, consisting of
Madi~on,
Monros, and St. Clair Counties,
Illinois, is a moderate nonattainment area for ozone.
2.
At
Sec.
Lion 202(a)(6)' the Clean Air Act as amended in 1990 (42 USC
§
7521{a)(6»("CAA
n
)
requires the United States Environmental Protection Agency (nUSEPA
n)
to promulgate rules for onboard vapor recovery systems by November 15, 1991. USEPA
failed to do so. Rather, USEPA determined that Stage II accomplished the same or nearly the
same reduction in emissions
of volatile organic materiaiJ ("VOMn) as onboard vapor recovery
and
was safer.
3.
Section 182{bl(3) of the CAA (42 USC
§
7511 a(b)(e)) requires implementation
of Stage II vapor recovery in
moderate
nonattainment areas by November 15, 1992.
1
However, Section 202(a)(6) provides that Stage
1/
shall not apply in moderate nonattainment
areas once
USEPA has promulgated onboard vapor rec:overy rules. Because USEPA did not
promulgate the onboard vapor recovery rules by the date required in the CAA, the .l\gency
proposed and the Board adopted Stage II vapor recovery rules for Metro-East in R91-30 in
accordance with the requirements of the CAA.
4.
The National Resources Defense Council ("NRDC
n
)
and others brought suit
against USEPA for its failure to promulgate the onboard vapor recovery rules. The Court
found in ,MBPC v. Reilly, No. 92-1137, slip op. (D.C. Cir. Jan. 22, 1993) (Attachment 1), that
USEPA did not have discretion with regard to promulgating or not promulgating onboard vapor
recovery rules and ordered
USEPA to proceed with its obligation.
5.
Section 202(a)(6) of the CAA does not e}(cuse implementation of Stage II vapor
recovery in moderate nonattainment areas
until
such
time
as USEPA promulgates the onboard
vapor recovery rules.
It does not require implementation of the onboard recovery rules prior
to relieving moderate nonattainment areas of the requirement to comply with Stage II vapor
recovery. This raises the specter of very large capital outlay in an economically depressed
area of the State for what theoretically should be a relatively short period of time.
Specifically, the Agency estimates that the capital outlay for installation of Stage" vapor
recovery systems
at the Metro-East's approximately 400 affected stations to be approximately
$14 million. Once the ()nboard vapor recovery rules are merely promulgated, therf' is no
longer a federal requirement that those Stage /I vapor recovery systems be there. rv1oreover,
once onboard vapor recovery begins penetrating the market, the Stage
lJ
systems in Metro-
East will be duplicative controls in an area that does not require them.
6.
The Director of the Agency
ha~
written USEPA Administrator Browner
requesting that USEPA expeditiously proceed with promulgation of the on board vapor recovery
2
rules
(~
Attachment 2). Meanwhile, it is the Agency's opinion that enforcement of
compliance with the Stage II rules in the Metro-East area, at this time, is onerous and not in
the best interests
of the welfare of the people of the State.
7
<
Moreover, Illinois is the first state in the nation, according to Region V, to have
adopted
its Stage II rules pursuant to the CAA requirement.
1
Other states, not having
proceeded as far as
Illinois ill this area, are in the position of being able to sit back and wait
and see what transpires regarding the promulgation of the onboard vapor recovery rules. They
have no compliance (htes facing their sources, forcing their sources into possibly duplicative
and unnecessary control measures.
8.
USEPA has not issued definitive guidance with regard to this problem. The
Director has
not received a response to her letter. The question is very much "up in the air,"
9.
The S\:age II rules adopted by the Board
estabF~h
a phased-in compliance
schedule
for sources affected by the rule. The first phase of tha compliance schedule requires
operations
that commenced construction after November 1, 1990, to have installed and begun
operating
its Stage II equipment by May 1, 1993. The second compliance date is November
1,
1993, for operations that commenced construction before November 1, 1990, and
dispense an average monthly volume
of more than
100,000
gallons of gasoline. Given the
uncertainty
of USEPA's position with regard to onboard vapor recovery, the Agency requests
that the
first compliance date be delayed the 1
50
days provided by emergency rules pursuant
to Section
5.02
of the Administrative Procedure Act
[5
ILCS
100/5.021.
Note that other states that have employed stage II for a
~umber
of years have done so at their discretion, that is, stage II
is a contr.ol measure they chose to implement rather than some other
control measure; it was not required by the CAA.
3
10.
The Agency has prepared the rule as it should be amended
(~~
Attachment 3)
and drafts of the supporting documents required
by
the Administrative Procedure Act (See.
Attachment 4) and included hard copies of them them and a disk in WordPerfect with this
r./1otion for the Board's convenience. rurthermore, the Agency offers whatever support for
this emergency rule that the Board may require.
WHEREFORE,
for the reasons stated above, the Illinois Environmental Protection
Agency moves the Board to file with the Secretary of State an emergency rule that delays the
first compliance dat3 contained for Stage II gasoline vapor recovery in the Metro-East area,
35 III. Adm. Code 219.586{d)(1), for 150 Jays as provided by the Administrative Procedure
Act at Section 5.02.
DATED: April
30,
1993
P.O. Box 19276
Sp.ingfield, IL 62794.9276
217/524-3333
03w\kcb\doc:tors\sts(Jo lI\emorrul.mot
4
Respectfully submitted,
ILLINOIS ENVIRONMENTAL PROTECTION
A(::NCY
Rachel L. Doctors
Assistant
Counsel
Bureau
of Air
_
.....
---....
,
----~w-----=------------------~-~-=_=~-.----~======~~-
"----
Now.e: This
OP1ruon IS
eubjert to fannllJ reYlltoft befOf'l!
IIUO!1~
jn
thO Fildfl'al ',*pomr or
l1~.o.C.
Reportl. Users Ill.
rvqU&!lt!a4l
to
aoCity,tJ\6
elm
Of any
&WIu1
emn ift
order
tb.~ ~
mq be
m:4s
btie.rt ttl.
boIIIQd
~
A'O
til pn:n.
No. 92-1137
Nmnw.
~
DSPBJIR
CoUNCIl. .UID
C£HTBR FOR AUTO
SAnrr.
v.
WlrJ..WI
X.
Rmu,'r.
AoIlIHlf7r!l.\TOft.
UNtI'ZO Surq EIMaOJQlSHr.u. honrortOH
A.aamr.
11m
UHlTIW
STArES ENVlaotnrENTAL PIlO'l"'&Ct'lON
A.czc.1ccr •
•
~
or lNruHA'1'IOliAl,.
AU\"OMOIILE
~~IHc..
MOJO. VIIbCLIiJ Atvtt1PAC'OfmBII.AIIocIAnolf or
'I'HJI
UNI'l'ZI) ST.L1U. INe. .
Bma
of
cc:ott IIUL"d;
be 1Ued wiW.n 14 (fa,,, after entrr
of
~
Th.. eoun
Joob with
dIsfnw upon motions to
flt. billa
f3I.
ClOItI
wt
of tIme.
.
., .' "
~
'.
,,'
y .. ' ,,'
"'~.
"
,~'.
, •. ATTACHMENT
1,
2
No. 92-lIC
1~"S1'
COASt 011. CltJIPOUTKn" AJtD SHun. lNCOJPOUftO,
F£fmilNflUl
v.
W,LLIAM
It
REILLY.
III
HIS CUACITY AI
ADMINISfiUTOR
or
tHE
U~D
STA1£!!
E:1V1ROHMENTAL Pnorr.C1'IOH AGENCY.
J!.~r~Nr
AsSlICIAtlON
Qr
lM1I!RNATIDN.\l. AU1'fJ!dODlU
MAJfDF.\CTUR8I'I1ro
INc.
M(tfOlI V'!:HICU! MAHUF'4CTURERS As!oclA.TWH OF Tftf; .
UNtTEU STATtS, l)f(' ..
hnmnE!:[)IIS
No. 92-1167
,'\M!>I>IC.\N
P£TOO!.~tJM
INSTl"Ttm:,
r~mQ!I~R
v.
WIJ.LJA" K. RnLL!. ADI!JN!SiRATOR.
H!Cm~D
3':ATES
E~ONMBHT.u.
Pnor:r:Cf[OH
ACENCY.
AIl{\
Umnm S.r.n&.'i EtwrRONMf:N1'AL PROTttrm1l
ACENCY.
REsp~n!l'lS
t'
S
No. §..J!22
N~
BIBouRca DinNa CCtUNClL
All)
Cnr!.
PoR
A~
SArm.
v.
WJLLUX
K.
RSlLI.T,
Ame'H~1'03\.
UmBO STATBI EmIlOffBCHrAJ. hortcrtON Atmtiey,
AND U1UrEO STATiS ENVtltOPlMP.NTAL PROTSctlON
AQt2oIGI'.
R~NC!:Ifm.·
No. 92.-1260
Km CoMr On CoHl'OItA'rfOJe AND SHEETZ,.
IHCO"1'O~
Ptun ...
v.
WJLLrAM
K.
REILI,Y, ADMlNIWI11A:roll.
IN HiS CAPACm AS Aol1!Nt17unm OF ,'U;
UNJttt' STArn ENVlltOKloIEJnAL PJIOJ'ECTIOH AflEHCr.
RUl>OtorDD/'
\
No. 92-1243
AJ.~BlUCAN
PETROLlWM IMl'l'lTtne.
~.
WlLLlJ.M
K.
REILLY. AoN!N1STMTOR.
UNI'mI>
SU1ES
EtIV'~Br""AL
Pl'l~I01'l
AOtNcr.
Ul!)
U~:rn:ll
SrA1't:5 EH'V!RDNMENTAL J>ROT£CTION
~'Y,
R.I!l'ONU!:1M1J
.
"
PeUtion fot
.Rmew m III
Order of.the
Environmental
~~bn ~
!I~
1.
,..~
with
whaIn DrmrJ
D.
D~ Mi~D.
tmntm.
J.
K~ A-,,~
Dougia.a Mtm"U
And
Alif:f!
... tlit ..
~I
e 011 thr brier. for patUJonenr.
/lJalrid
J.
Kaplo'n,
AttorlaaY, Unlted Stata Department
IJt
~08·.iee.
witll
~hom
Alan
W,
~
A!socilt6
General
Coon-
I~, NQ~r:y K,tchG-m-CoIwi~
.AlIststlm~
Gtnersl
Ccunse!.
and
~JE}!
E. Sil?Jll"m(!1f,
AUorney, Ofilee
~
Genetsl Counter,
~iled
States
ElWfro[1m~ntal
ProteeUon Agency. \\o"C!l'e on the
ic::f,
flJr respondents.
Chru-ks H. Lockwood
and Job
T.
Whiltlq
(:I1tered an
:p~srllltce
fur fntetvenor. ABllociatierl or InternaUonsl Auto-
~Jile
Msnufgdl.lrel's,
rile.
KmroA!l.b.
S.
G~
8ri.ta
Z.
JfJI"l.V4
£vr:ur.
M.
r ... and
~lllic,/)t
OJ
ab..~
entered an appearance for Interve:DQI',
JI.~a·
.r Vf!hldc MaJlufacturera As.soclation <tf the
United
Sta~,
l~.
De(orr.: EOWARDS, RlJT!l n. GrNSBURO lind
WrLtJA.m;,
Circuit
uiges.
O,~h)jUll
ror
the
Court mad by
Cimoht
.:
t:CgIJ
BOWAllDS.
Concurring opinIon filed by
Cb~~rm
Judge
Will "'''fS.
f;OIvAP.OS,
Circ!loit Judge:
fie
l~
amendments
to
ttle
lean Air Act
("eMil)
altered 8edion2a2(aXG> to reqlfJre the
;I:I~JIImel1tal
Protect.ion Agenc)' ("BFA"), after "caneulta.
1:-r" with the Department
of
'lnmportatloo ("DOT"),
to
fll'nulgale lItandll.ros
by November 15,
1!191, tlrnt
'fJOU1d
'1'lirl'! !lew "light-duty" .ehicTes! to be eqalpped with on-
l:in~
rrfu€!ing vapor recovery
("ORVR'')
3'ySte~
over
II
,,'~il'if'ri
ph:l~r.h)
period. Mtot consaJJtlng with D<n'. EPA
I
Ligfll-cMy
vehttl~
fnclude
~ngeT
eli's amI "WIt tnack.
rabl~
.. r
~~atjng
12 or feVl't'r
panel1BBrs.
.s/J C.F.R.
§
as.(]8Z-~
¥.J2}
J
I
('!
5
eoncluek4 tblll tbe.wei.1 riJI'cI or ORYR ...
Wf#'
,~
pven the
~.bItt,y
or
~
mafa ....... ,:;:
:c -"lIDa
~
taper .dllli_und dedlnad ." .
~
ORVR
~
by tile
~
dedIne.
lUon
\flU
N~
a a
nne:
A1~
.A.e&hri
In ApHto
Fed Her.
18.046
(lit!}. In
e~
Its
d~
I!Onlmded Ulst aDlemled seeUoa !02{a)(6) contrdmld
_c.lQIJ.i;~')'!
Gut~cdty
tor
EPA
to exe:tile
discretion
!D decWtuJ
w!t.etilt!r;""i./;(:,
to
pl'Om;ipte ORVR etanclJrdl
It the
Apuy detGi
that ORVR as mreQ01IabIy
anafe.
The
Natwal £to;
.0UlUlI
Defense
CO\l~
("NRDC")
fmUa~d
thil_
IhPi ...
llwt BPA lacked d1aeretion uradtr tbe statute
ud
lhUUa.
(,llure
to
promulgate ORV! standard!!;
was
Utentora
uta_:,
M.
B~le
tile
~angu'le
or .seetian 202(1)(6) platzIil m.osesa.
mandatory duty, W,B agree that EP'A's dedlion
JIJOt
to prcnaul;
i§ite ORVR
standards
ftt beyond the peJe of Its
~'.
1TQihoritr.
There le uU!Ing
In
the
gtatute
to
~
.•..
EPA'. eJsfm for relliduul dlieraicmarI authorlt;y, DOl" ..
tt
9.'1tblgulty t.\at would
watnJllt
def~
by !WI eomt
!
ORVR
EPA'a CCltlstruCt!On.
safety
do Mt
Further1'ue.
~
tluIt
EPA"8
lID luch
rzndJngs
SYItems
~.
~.t
"'V
...
...•.•........ '
........•.••........ '
.•.......
W1enmt ami
~bJe
safe!u' rlsb. We
IN thaii
not .. i,:"
. bced with a sftoatkm 5n wbkh a Hteral
~
GIl
the aect.iGIi ..i..
••. lr
produces
nonsensical~.
Wbatever
dOllbf.l
EPA
mq ..... '....."':
!leve abtlUt the wisdom
or
~,
imPlICit
ftl
the 'atatute mat. ;.:;\
bl>.
rabed
with
Congn!D.
Thla
eourt Is nvi; the proper 1l'CJl'W'lt'.it'
in
wftlch to atgtle
r.he
relaU'e merits
of
Utose choiceIl. 'fhare- .. • ':;:)
fore, the
F1nal Agency
Adit>;I
is
@f!taside and
EPA·i,~"'.'~
to promulgate ORVR standartb II'! romplbmtoe
\Yfih
the
OAA.
I.
ItACKCRO"Nl>
A.
T1u
"R~ft~ing
YopCll'
Rtf:79 ...
wr"
~
!"unng the norma! .ope:aUon of PflQtine'
rt~ij:d Y~~leiev,
bydroe~b()n
vapors build up
hi
tho fuel tank.
W1teh.
thP. OIl • ,.
ear} is
removed
duriog
refueling.
most of
these
~.c:
!.itt
fcreed out of
tJae tgn,k
and
~to
lJ,e
I1n~t
OJ
the tl'J.tt1S
1)(
UquW gasQUne. Th18
'I"8~se
of vapors pose!
t!lghirreant
s
'cal\l1 and environmental hnardL Of
primary
eon.:em 11 the
eet
these. '1.apofl h .. '!e
G'i abe
promactloD of 0IQIle) whlc:h b
-med Y:hm
hydroeaa~
and b1trcjlen os1da
teICt
In
~Iight..
e Extaslvi OIOM poDutiIm ! ••
penbteDt emfron.
e1l:~..aI
hatard
In
~
melropa8tln......
Sea
AIr
Quillty
Je5lgnatiorul and CtasattIcatlons, 56 Fed. Beg. 68.694 (1991)
:,Jem~ting
rtOOIIttainmen&.
IreS!
fer
OI~ne
pt)1luUon).
In
Irttitlcn, e3eaping
Saso1ble
vapcra contain !mown
~
~!lS.
1
'IlMl.
tile
COIl~l
and <!Ontalnment of
theIe
vapors bas
'een ah
~m'lronmenta1
eoncem P.Jr nwsy Sears.
Two rosie apJK08ebea
iIIve
emerged
Cor
~olltrollini
th&
:miSBioIl of
hJdrocarbon "=por! dmns refueHllg: .Sta,e
un
lont:rot,: 4 and ORVR ayatems.
Stage
II
~n~1I1
a
rGbber boot on the ruel
JlOlZle
lUt treatel a tIgItt !eII1 wit...)
the fuel filler spout 80 that. escipinl 'IIpOf'I are lUlflbaed
arid funneled
to
underground Clmkl-ce
refatmly:
Ilatple
tnh:hanisms that
hue
been
UIed
.hr.ee 1976
in
man;)' counties
i!1 • Callfo;:nlr. 33 wen 8S
~n
dUes
In
the United States.
'2 EPA
hllS
ft~Md ~ll
AmbIent
Air QuaUtJ
Qucla-*
('NIIAQS") for six pollut ..
b,
i3ci.szdfD8 ozon.t.
~ ~a
c.F.R.
S 60.9 (1992). Those
Il't!H fn
w~
czzont NAAQS lI.vliI JJOt bltn
~ tt.ain~c1 ("!IOrtJlWnmen~"
SleQl'
8l'duIIhd
en,*, u "'Jfarz[n:l,"
"ModerllU!." "Sl!rious,
U
''&",ro,-
« "&tnr. .....
dl!~OOIns
on the
leVEnty or thll 0I!:I'JIIe ponlltion m
tMIe
aNSI
Sef 42 Cs.e.
~
"151]0 {Rupp.
J9!5).
1
f'~?,\
11M
~Juded
lhal
be":~ne.
Il nonna' tOl1!:!jtu.ent diIIO'
liM
amI
gMOWre
vspo~
Ie :. hwoltll (2l'dnogea. 52
r~.
Reg.
31,1.')2, 31.16g
(1981).
Epidem!ol~
and
a.d~1
awdt. Indicate
that PlIpt'$ure to bemne reaults
in
in ir.cttase
in
Jtukemfa. Mo.-e-.
oller.
IInlmllt studie& wi!h
fuet nponir.lva
d\'!ltlonat~tei
a
,;pm.
nnl fnr.:re3M.
In
kMnay
dUIaI' lItJiOng
mil!
~b
,ad liver tueft'
In
((~mal(!
mitt'.
3d
at :n.ll8-4t.
~ore,
SPA W
~d
l11t
gR~fllinf!
vapot'! ere a prcb&bia haunall c:udJl.OitD und,r F.PA's
C:mce:'
m~1o: As!es!t'del'l~
Guidcl!nn.
Itt
at. 31.164.
~ ~I·ruali/Jg
9pP.r.Ylans at sernc:e stauOOs
!rwclve
ty..c
I!teps: the
fillillg of ll11uergrCAlnd s{orar- tan!;s, eamm"nly eailed stage I; alld
\
(!lticle reruelitlg, cl)mmoRiy
aRed
~e
It
Sea EPA, Evw\lc:a of
Air 1'"llu!jQrI Beg-Jlafor:r
Slrate~
for Gasoline Mllrhtrrlg fndcs.
try.
EI'.~·45QI3
8-t-012a
lit
1-,(;
(J~l)o
1~1.
....
~
.. .a ......
~.a
........
~
..........
~
.............. a. .. ________________ _
"
;,"<
&6 DOT, Al&eiMftlt
r:f
the &My of
~ ~,'
~
"
.:.I
','
,~
V.por Reeover,y8)lttlml &t S (July 1991)
(im~~~~""':~(i
~J.
~tM~CAA~·S"lI~:'~:\i:,
requlJ'ed
in
molt JlDllltWnment area or
mdateCl',~:~
severity.
St,.(I
U.s.C.
f!
1!1lc(b)(S). (¢Jt
(~
()1{)
~~~;!
1990).
,
.'
,:~":'
GRVR
system, on
tLe
~
hand. Ire
r.l~re aophf.tI4.~;t
Ind
hue
not yet
Or!1»
UleC
m
p!'OCIiieUon vehidBa.
At
tilt ;
name fmpRes,
onbGard
reCuel1:1s vapor recrml')'
.~:aN::
bunt mto
the veb1cle
ibel£ tD
oontafD the wpm
betCl thij)
reach the fuel fiDel' spout.
There
are
presenUy
twit
"PU~:
technology
thai.
haye
betm
It4'Icmlll
ecmad~nd
for
opn~:'
a! ORYR s.rstema. ThE
tfrst "
tM
oava
I~."
...... ,<:
colleetl vapors as they Ire forced through 8 teplatq--.:
and
'l!.tlrel thtm 10 !l
c~U'e981.mled
tanistel'.
S.
DOT
Atieltiment. c. 1.
As
thI ensfne operates. amWetIt.el.ril
drawn through the C':IfIIster
\0
purge
the
~nIeIJ'hOl1l,
ha,
the charc:osl znd meter the vapors brck
iJttA)
the
eDgine
,~'
combLri:dim ("purgfng",.
8M
isl.!
C:mIst.er 8,1Stem& are mare!
fully Iml\'ed eaan other OBVR a;ptems because
vtrtunt~·"
ot
t~8
nece5W1
~
for
eznIIter
a, ... ",
eur~"
;a.,aUanle. Inderi, moat
peauenpr' car.
on tile
road:~'!:
~lre.d.,y
tarry
II.
Il"lIill cltatcoaJ ruled eanbter (so ealltd
"If.:)
o~tim canbte~)
to collect. the
r~91!ly
modest
~:
or vapor
th~
"ctllmula&e
in
fuel
tub
dwinJ
~ ~"
thhn refueling.
It~.
in
fad. mGditied vee-s&. ct
~),:
evapOJiU.", I!llnf8e.m that
tit!!
NaUrm.! iftsbway
Tr~:'
tJQCI
~et.j'
AdndnlstratJcm (flNHTSA") studied to
CI'ID!r., tD"
provide EPA
""'~h
DOT's recommendations
reprdfng,tltt
safety of O.RVR.
let.
at 2.
'
"-""-~-~''';
An alternatin
to
ORVR canJaten
is
the &:dble ••
~
der;
wDil:h
eontnm as
g~e
is burned,
retardIng'~'
'Under !'lonnal cpcnl\ng eondlUtms, 11 •• 51
all
of't!Io .....
should be purge<lliooi
t
saluralAld OR\'R cam.tcr wit.W1 tbeJblt
I!leven to
~el'\t7·eight
miles of ::avt. after refueling.
8N
pm... .
menta
~r
UI4
America" Plrlrolsm institute
C~mmg
9A'I ••
PrcP01J6(\ R4lgtllaUoo
or
RetueUng EmissiON. DocMt
No. A-81.;.n
(Oct.
~,
IS91) It (9
(hm~T
"API Commente"J.
'l'8prineedu
JoInt ApSll!n:U.x
r J.A.") lilt
2.~.
'
',,'I;
e
8
il\.'aporation at liquid fuel and
tblU
the aeeumulatJcn
of
hydro-
cubon vapor.. Beeau.e of
~tfaJ
!lretl Of_fits
ftvm
auc:h 3
aystem.
uJde hm
Ute
en,ko....uJ
~1l
[t
would prO¥ide,
til!
poai1i!1t.y ellIS" fJeJihie lbel
.bladders
ha~ h~c
explored lor
lDIQ
years.
Sft_..,..
M~
111)'0:
.hm
Sel:-·~ndelDlt?
EPA Mechaalcll
EIl~.
to Pub.
1ft- Dcc.i.cet Nt". A-8'l-U (!.WIr. 1. 1968} (tIlemoria1fzfni a
meetlng witb , manut'acbttv
that
had beeI
~
tllei
b!adde..'"S since "Ole wl1IP10'",
[h!rtinqtCer
"Schwendeman
Memo"},
~n~.,d
=
J.A. It
5K
NODd.helm. no bladder
proi.oljpes were aftDlbIe
~:,
the
dme NHTSA conducted ltl
study. &6 DOT, Review 01 Comments
.su~
tc; EPA on
N HTSA.'s Report "An Allre!Sment of the Safety
or
Onlroard
Re1'tieling Vapl»" Recomj' System."
a~
.. (Nov. 21, 1991)
Iht1"sin~6T
'"DOT Review"J. nprinU!d in J.A.
at
153.
: n.
LegidGtm
and
RI~
Rt!'Plnnts
t"
tJ;(.
"Rsfotftng
Vapor
R~"
Probl~,
Undm" Ule 1911 sJ1H!ndments to the eAA. EPA was re-
quired to promulgate ORVn reguiatioas
if
it found ORVR
to
hI! 3. fellisible and desirable means or controlling vapor
!!lIIls.
slons during refuefulg.
Pub.
L. No.
~.
I
215. 91 Stat.
1(iO-St
(l977).~
Upon rmew of the iniormaUon 3vafJable
to it
I>
S~litJlJl',
Cermer
~Zoll
2OZta){G) proyfdcr:J:
Th~
AtL"1timctratol' s1W.l detA".nnlM the feu!bilil,J and desir:abil.
ily of requfring new
motor nblct.
to umlu ombo3rrl hydroC2r.
bon -:antrol lllCbnology willch W'Ould
a~(ild
the r9C98ity
or
g,,1IOl11\t'
va~ r~coywt'1
of
~ontrolfad
etmSSJOD' .emtlltating
frorli the turin,
t:C
tutor vehIcles.
Tho
Admlnllltraror sb.1J
colDp8re the
~OGt$
and tfuetlver.eu GC ... tSl!hn.otogy to that
I).f implementIng and
mJ!n~
ftPCl" mfJlleq
S)'3t6Iu (tak.
ing Into ecnsfderaUoR Im:h faeCcn • ('Jet I!C!OI1()llIY.
~
~osb
or
such tfthnoJogy. adrnInlstntfvQ burdens, ai'ld
telJ!lttabJo
distribuUoll
of
cOlb).
Ir the
Adm!N!tnicr fln<b that
n
(5
fce:dbla
~nd de$inbj~
to
ell'lfloy
Stith technology. he
shal~
&l1tr
~or'S\lftai!on
with
tJl!
~rebl)'
of Tran3portltJon wltA
~
lrJ motet v!btCJe
~retYI
)lTemiI;4!, by rtguJalioo, sbr.d=r&
l1'lp1iring
tNt
lISe
Q(
ollb.Jard hydrocarl:on
t~clllJclogy
which
~11~1I
not become t'ffeeth'e untJi the Introduction to the modol
1&&&&_iIIl
__
I!;III!I __ IU __
1
f
('
9
in tht lite
1m ..
EPA
~
eo1'ICiuded
"teehDleatl7 ....... " Bwa rad.
ReJ.~,~.;_
'eaadllfons
reached in .19H1J}. However,
m.
~ addiUoul~.
bardeaI an Use
I\l~
inMby.
twA
dedded
DOt
to
Sl'Item,. .t that tfme.
s.e.ff
Fed. Reg. !1.m?8,
In 19sC. EPA ,pin kOk qJ ttie ORVB. Jnu In
study
mt.ftled
"Emu,Hon' ct Mr Pol1uth1a
SIr.~;~.1
GasoIln&
Marketing lnduatry,"
1184). Scs,
49 Fed. Beg. :U,106, 81,707 USB(} (lMIJOndni""
public
uaihlbflft1 or
tbe studJr).
M\I!r
~ ~
tfon. EPA concluded tbat ORVR 'fIas
tal! preferrid.
tedmoJop and
~d ,~
detlll proposed
~fo
the
implementatioa or
,~
oava
62 Fe&.
31,lmt In Ibsl same
Fedm! Register
Natfee..
dmled tf!..e t.eehnkal dJ.ltJel ..,ntliated witJt z ....
~""'I!'"
oava
system. ErPA COMludtd
that
ORVlf was
.~
nra and that apprlJXimateJy two yeara
of lad
time "\laWi'lJi
sufficient. for mcnufatf.urel$
to
in,taI
OaVIl In new.
slQCe
mOlt 'of the technology wal
~y
IvsUab!.,
&er~
Jlt
;lI
,202-C3'i.~:
Relea.n!hers
at
NHTSA had a aOlflewha
dift.erU
~{~
the sJtwUon. ror they
bad
conUnubJ~
C:Onte1'.
that
oIt'ij
would lead
to
sn
I.nen!ae In
crah and
no~b
Jtf.tIe1I
firEi1.1
S"
51 Fed. Her. iSm (1992). nuS. before
~I
gaUng a &111 rale, EPA
Itntlated
fr.uther dkdofue ..wm
NHTSA
in
order to
add~1!
these iesu!s.
. .. _ .. '_
.-.. ,:".L:
;;;tor which
it
woold
0.
letdble 10 fmplament ..,
.~.
da.toda,
bklng rnto eotllldentloh e .. oa
~
and
lhin;
1ttaIfJC8
of
In adequUt lad
tkne
for desIgn etid
,rod~~
., 'l'harr e"e
a~teI;r
28_
~eI
IMwdJ,y
~
..
~
the msb of a
~_Ol'
labt t.nH:k. DOT Aa .....
$i;~
. Data
all~!d
b1
NHT8A~&e
that
vUkJe~are
••
to
four Un-ru more llkely
to
be
injlU'.
III cruf!. iIPolringa ..
&'J
than
in
non-tire e......
Id.
at 9. Moreover, the CatlUq
.tate •.
:k
c:aehell
involvlng
fiN/if
is 7(hIJ01f, greater than h Qon.&e
~
U
.
141'
NH'l'SA's coJ1OU'IlI at.euameil prinIIriIl' from Its ¥iew
that.
ORVR would
JMrease
the
~
of fuel
qatema
and
concomitantly the riak
of
lire. EPA
I~
' ....
.w to
this
~on~ern
in
biB draft
repIIt on
tht
lIIfelif
d ORVll.
Ftl'llt. EPA ehallenaed NHTSA
'•
mldertpnc ••
aumpUon that
tMre II e posiUYe correlatioa betMen iIlerened cOIl'Iplexlty
and iPcreased riak. EPA:no&ed that the tncreutng deaign
camp&exily of
automQbUM wfUtout BfFJfteut llllfety
deg!ada-
Uon "stro.'l8f1
IU
ggesb 'tbllt onbwd
Iy ....
of nriows
de-
slgneomplmdtfee eould allo be tmptemeSed
arelJ."
EPA
Draft "Sumens.rJ " Al:ndflll
of
Conuoenls Reprdkig Poten-
tia} Safety Implka\!l)nl or Oaboird V.por Recovery Syatetr'.s"
at
3..35
(Aug.
1988)
[MmMjUr
"EPA Dratt"l.
~
•
J.A. at 'IS. &cond. e1l!n aSlumh1llhat added tomPleJit,y
means added aatety
riIk.
BPA
determined
thl~
oaVR sys-
tems need not. be 0ftIi)t cemplex..
~I
to the
draft
report,ORVR c:anister ayaternl could be da'ftIed, that mwd
be simp1e
extensionl
ofpretent
e¥IPOntive IJIb'IIIII.
Set
id
at 3-40. 'Thus. EPA tow:d
tltd "iltraipubnmd.
reliable,
:nm relaUvcly Inexpen&,e
~1lI,
sotatlonI
~
(or
ea~h
or the potential
problema
idmrUf'led."
Id.
In
Ortl8 to
teJ\ thk ccmet'llllont BPA cont!llruc:ted a simple
uRVR c:Diater ayetem and
1nstaI1~
It to •
test
yehfc.le.
It.
at
iHl
TWa vehfele a.dcqutely perrormed under
limited
teRting
cDndlttons.
leading EPA
to S1D'fImariz!! the
~xp6rimot
~s
rollows:
Onboani system!! ean be simple extensions or lJlodJl'lca-
t./cns
tlf
present evaporative tystems. Furtbar, modlfics-
tiollil that. are necesary can even simplify e.ertmn aopecf'..1'
of
thn
eummt dedp. With
the
proper delJ5ll', 110
lit!,
need be added.
.M
In fad. refueling eont.rots can om-.
several
Bafet.y
benefits.
1
Ii
a~
5-7. To
f.\rrlher
as8CB!I the aaCely of proposed ORV'
~.
:$ystems, EPA contracted with an cHbide firm to complete J."l
independent study. In Septemaer, Jfl88. after reviewing
tb~
risk of "ehic:Je f1m ftlr len
d!fferen~
fuel system deSignll, the
Ibltell(! Institute"S 'l''ttlr.sportation Safety GrotlP concluded
thllt the risk of fire was remote in an cases and that It would
r
11
_ be .... .,
impacWd
by ,tba
fnlta1lltWiy;il
Sal
IPA.,
lW~
BaiIDJl Coat.Id&:
Nratimll
HfJh'RY'b ........
~ AdWJI~
(A:pr. 21,
1989).(~
-EPA BrieftJll"l
J.A.
at lSJ. '
Durlng til ..
PGrfod.
EPA
wi.
I1ao
~vkc ~·i_
•.
&om NIITSI\...
III
Odober.
1_ NH'i'SA _1II ....
·i~.
anaJJ"s or EPA'- dr.ft report .. well a. au
ant1JthI .•.
. public eoramenla SPA
hid. moJved
18 • re.aUt
Gflte,
'~,"
ORVR
~r.
FfrIt, NllTBA
refI:mtId
that ..
deIdp
",exity In fuel .,-.tmnl
&endJ to
lilult
Ike
rflir.
S.
DOO'.
Comment. IDR
the A.1.tpat
Draft at 9 (Ol:t. 1988), reprimed
in
J.A.
"t. 606.
NH'1'8A
d~d
the
vaille
d. the iesb done
W1~iA8'._
pratot,p
ORVR
~
..,.,.
.irace
EPA
~iA~
aeaMnt for
camin problems
Utat
would a.riIIfI
gpenUn, condW-. web
II
fuelleakare aim hell
ar·.~
bilitif ( .. ,.,
enp.e stalls
snd
haitltlon
during
.~
S,. itt
at 10. TII\1Ss
NHT8A CIOIItended. that
add ct.imp)edy to Ute
QItem -
~I
by
in~~i
tied lUnoun', .llretj
baArdt!.
Jd.. at 9.
After
~
NRTSA'$ alselli'!ieDt,
cmd
In
Yiew
cC SI1U'l1lDeat
~I
w the
CAAt EPA _UM!!
to I£5UI final
rule
I
ORVR .yaWn8. Set 51 Fed. Reg. at 1 ....
In liDO, COIgels
apIA
.menrW tho CAA,
1.!IIIabllBhfng a c:omprehenltfa
framework tor contrCmnl..
eJinc embs5oo& Under eedlonI'
18!(b)(3).
(t). (et).
Stage II 'CMltrols are required In
modera~
aerlc\ll,
end extnmie nonattahlO1eut.arul'l. 42
u.ac.
§
mla
1990). Amended
ecUQo 2»2(a)(6)
oCthe OM ___ •
that
EP At
at'b!r cobsultlllGn wWt
DOT
reprdIaI SIlttaty.illiA
promu.lgate standards for ORVR
by
November 16, .. ,.
oaeeuOii
20!(aKi)
T"~I
in !uU: .,,;
(8) Onboud Vapor RectnerJ-Witbfn 1 ,...
.rN~
Cler
16, 19sQ.
~e
A.dmbQtratoE'
8hall, after ClIn8ultmU.i',fi
tlto
Secular)'
or
TnnIP«bUon ragrills
tho
'ttety~.
based ("'onbo:int") ayltllma for Ute
4:Clfitrol
of .,eWde, lahUl
em~ns,
promvig8te atandmi
u~
t'bt.
lIed1on~ri
21lllt new IIgbt-duty vohtcllm
rael\u4"aeture~
becmmnginl
1%
PU~oJaot
to
this.
ltatutay
ansndate, EPA rmRJated
amlU'lta..
Uon
with
DOT. thl'oup NH'l9A. NJf1'SA then embarkat
\lPOP a rwther rsriew of O.RVB. am5Iter wet,.
~e
idal
ORVR sJluma ...
~
IUd DDt .ftllable ,..
f!lde-
peooc:l
t
testing, NI!1'S&. ...
eo~
of. and
data
per
o
I
t.air.~~~
current. D18pIftUve B,Jitems to reach Its
CQnclu-
I
{(IIUU,
model
,..r
arblr Ute model l'Ul'
!Ii whlch
the standlD'ds
are protnlllpled a:JCi
tIIereaftet-
ahal be equIpped
w\t!t
such
s,ystem.. Th; IWldcrds requlrr.:cl UJlder this penataph alai!
~fJply
1.0 a
per~
of ft&Ch lDImd'actw-er'a de« Or:le1\' up ....
du~
fenldes bqiml!ltl
with the
fourth mode! Jelr
shr
llIe
made! ,ear In. -wtdclt the
standards
are pmnulpled.
'The
percclltage sllalJ
be ..
~ed.f!ei1
In the
rorowttlg
table:
OOtEMBNTATIOH SClU:DULB FOR
ONBOARD VAPOR RECOVERY REQUiREMENTS
Mvckl Ye# eommendnJ after
!I(anClltm
ptomul,etd
Pt'rttnt;are
Four:::t ......•..... " •...•...•.........••...•.•• 40
Fifth ••.•...............•.••..•.........•..•.••••
SO
Alter
r.nlt .................................. " •.
100
Percellbgal in
Uta
~br!!
Mer
In
2
per~ntnge
of
the minu.
fsduter'a 86!eii ,oJume,
The st:uJdardl thal! require !hat lueh
:syMt?:r.s pr-aridt
a
minImum evapnUve
emillion tllJltute cmc181lQ' or
~
,mont.
The
rcq~
of seetfon
15I1&(O}(S)
or tbJs
Ut1&
(J:eJ.Uni to
Jtsge II g3Bcfine qpor
re~veJ3')
for
~~
clanlfted ullider
section
'1511
or this lIUa u madmt. for OZOIle -haD not 1Pl'1:f
aftsr pr'lmulgaUon cl .ucb ibrIMlA'd. and ("-It J\dmlnlllrafcr
tnllY,
by
ruJe. revtM
or
WIId~
tho application
ot
the rP.qulrll.
mel1l# of atteh
secUolI 'ZSolla{bX3)
ef
&1111 Ilk Cor
sreaa clad-
tied liMe" section 7511 of W, tWe ..
Serlo~
Bevue. or
Extreme lor QIOae,
t!
IIppt"Oflria1e, dlaT BlI<h tillUl
ill
lhe
Admlnlstratal' dd6.l.m!llea Uta! ;)lIboam emisMns
~tnlIIYs.
fe:-rls required under
this
paragraph
:I~
ill
wid~te3d
lIse
tf'll)ugbout the motor "ellide fleet.
.
~2
tJ.S.C
~
1521(3}{S, (Supp. 19lm),
t'
;
,.,-,-,;;;:;;::, ...
13
. !dOD!. DOT
A.utIItna&
at U. NH'!8A
~;tIi
beeIuIe r4.
&YaiJ~tty p~b_
• did
IS~
ccmsfdIr. , ...... , .' .
ate ORVR ')'Item other lhM cadlterl.
&Ie
DOT
~
..
~
,4.
NHTSA.'I baJ report wu tubraltted
to
EPA 10 J.,
..... .
'l'be
J1!fJ1ll"t ldenW1ed poteDUII falluro
pamb
~ ar.t()I1.~'~~i
cSIl~ltlSr
system
duinr OjMntlon.
DOT AmlSiOOlit.
m\..1-&.\
I
However.
thJI
anal),ef! wu
preaaJaed,
em tour criUcaloCl:!
'. unproven laamptionB about ORn
tll'l!atar~.
FCrit,;..
slnee
ORVR systems will
Acne men
Y.IJIOP
t&m aSIfJIi::!
£'V!lporative eaniltet&. NHTSA b,ypathemed. that
tIae&~:.:
huard posed by larger ORVR
e.QIatera would
be
~.i.l,,:.
t.ban that
or
existing caniaterL 14.
a~
8. Bseond, NHTM;::!:(
speaa1iled tlmt the qtIIBtitJ
or
vapors
being
muted
~::)\~::
the &y100m
dUl'bsr
reUeHnr vJiU be
12rp
:!oI7lP'rad.to.~:::i:;;
whJch pUteI Utrwgh mrent 311lJIonUve syab'lml.
It.
Ba;ii,,~i:
Third. NHTSA !1slUmed
th"
Use
eomplexitJ or
tHOIVa',:;, ..
cmister
system.
wi!!
be lI'f8ter than presumt eyltem.a,
tlu&S.:i::/i{:
inmuinr the
~
01 eomponr.t' f.t!ure,
1~
fllilJij\/!,i
NHTSA COlltenlJd ,bat the bK!renaI quanUt.Y
of W.
~:W:!'
beIng c:vrieclln the vehicle
I&. apy
given tin wIlWtO:a,'!::!::
greater
dJanee of rue
In
the evmt
at
A
crub
10
whiclt
~,~I~
lntepft,ls lost and the
eunbmts of
the. canistlr are
~.:i,;
to
sn ignlttoa
SIRII'~
It!
Besed on theta 183UmpUott.tl,ij'
NHTSA
~
that:
'.
'.1'
',I,'"",::."
UMer certain ecnditJom
~tive
of the
matar,.
vflitcle crqb an.d operating emfronment, ORVR
~:)
Ina vapor recovery ayste11'l$ would result In a
~'i
incrtUe
In
tire poteDUaJ. Thes6 oecurrenc:es
E'el!ut~ln;an+
increalled safety
risk and
hence
would h/l\-e
II
n~"r;i,
impact on safety.
,
'
.. i:.;
Ttl.
at 10. IJthouih NIrl'SA mlietal'ned
that the
~f'C
conditione
if.
ased
Giwillded
real wcrJd
eD"liroJlm~ I~,
I
osnfzed
.that the .oeeurrencl! of tlte68
1!OndJt.bas
'\WOld bt,\'
\lflilket)'. Jd.. at n.
.
<,
Mter
pubfleaUon of the
If.l2dy,
EPA reque&ted .public
~:;
mont on NHTSA', DpdfRg$ and eonclusions. See 5B
r~
.',
Reg.
4316B~
(l991}. In late September. at
puWt
beaMlf,'.
on the maUer was held hi which both EPA aJld NHTSA:i
officials pru1klpated.
See
57 Fed. Reg. at 18.221. 'EPA
illeR.' ..
j4
asked NRTSA
to
review
the
JftMItaU.:ms md6 at. tM
hearinl .:And
to IelIpcad
to pdlUe eonuneutl.. NIrrsA.ia &eclt-
nJcn) eys;uatlon. whlih f03Jowe.J on NovoMbe- !'I, c:ondlded:
On thiI luur, tba reeani b dur
and
unambiguou ••
ImplementaUoll of
ORVR, reprdlaa d
pror.otJpe
chiYel-
opnle~I·.
ami
w.imoJoaiCll
_utfon, ..
Inmae Af.ety
risks. ORVR
fty&f~1l:iS
.01 nquiro .1tW5Ucn,,!
(!~ts
and
UI~st.
m&I'IlP. !'!c.cn. SlId
tr~crt
terger quantities
of IlammabIP
filQf
'tII.,.". . • • Thus.
f\Jrther
teehnology
deve!o~~rrt
and cpe.raUcmal ,uel!e;,sas or tanures
of
prototype vehicles wil} not el!minale
abe
fundamental
safely i!3U9S
assuclated with
ORVR lIystems.
NH1'SA tomIiden. thele rlake
to be InHnmi..
W,
iN HTSA] believe that
iItJ lIDI01:mt
of prvduet develcpment
ur
elIgiJre~ a~
quallty controJ
lneNllR8
would
f\JJfy
3tlevi~
these .rhks,. J"egllrdlea
of
read time ..
DOT Reyiew at
~.
While this etalaaUon prote.
W3S
beIng eampleb!d. the
N<n'emOOr 15, 1991 deedline for the promWptlm
or OaVR
standards !l8!sed mthout. EPA adian. tJJeprf Ulat EPA
had failed to abide by
the
ltatutor, mandate In seetlm
202{a}(6}.
NRDC
rued dIn
tM &c&tern Dlstrld
or
VIr&ftda
under $ecUon 304(1) or the
CAA.
Bet NoCUnrl Rftm:n:D1!
D~EmS6
C(nmcil
tI.
Hem,,.,
-m
F. Supp. 268 (E.D. Va.
1m).
ileCore
the
case could be co:tdqded,
h~,
EPA laued a
N
o~ice
of Ftnal
ApnCf Adkm
in which
it
determined that the
~aret.y
risks
oC
Geboanll1!tems outweigh4lD t.he
~mnmen·
tal benefit. or such d!1vke. aad L'tat
it
would !\Ot, there!'ore,
1>romuIgabl
.tandard, PunnDt tQ
;:;eeUan 202(&)(6).
SH
57
Fed. Reg. at 13,220..31. Notlng that
~Uon
807(b)(l) or the
CAA confers exckl!lw Jurbd!etion on the UnIted St«te9 Coort
of Appells ror lhe DiIb!ct oi Colombia CJrr.uR to review
Final Ageml' AcU01l, the difl.riet court
d~miS&ed
lhe case
without
p~dice.
NIWC
1t
Reilly,
788 F. Snpp. at 273-74-
Th!ll decision hu been appealed to the Fourth 0lrcwt, whicb
r
I
,
i
16
f.
hoJdfna dat
eM • __ HIt
pecdtnr the •
cae.
NRDC
~ ~.
No. 9I-IDi (_ ar.
l). .1>JIcoaxON
,i,
Th! prfaapal
dfapute in
tlds
cae In,..
BPAi
tstfOti of sec:tIoD
~6}
of Ute CAA.
NBDO
COIItamIi~a
the
Itdfon
~nt_
III
u~
r'!qunaat
, ..
promulgate andar" fGr ORn
3yt1temr.
SPA,
011
hant\
1_
tM IIccmNltatEon" nquSr'-' conta!rat
tioo
~a){6)
as the
lut 'feItip
or dlcaj!tJon
PfQIl~:.~
Agency. . b
pll1Jcalsr. the
~.
crpea &bat
~.;~
not intend that
BFA
promulgate OR-VR
atandartts~K'fttlii,
tha
8)'11tema
to be Inherently and tml'9ltaonabiJ.
unlaft~:,J;;i~
,/srnee
EPA II
cltarced
~ Idml2i~
..
NRDC'.
~
to
Itt Clanatntc:Uan
or Ibis
pmftJori
be
reviewed
uefhg the
qat,.
pro-rided bJ
the ,_
Court
In
CMrmnc U!A. If11! 1L
Natut'Cll
Rawt'Cllt
C'ounci~
Inc..,
467 U.S. 831 (19M).
It.
~
the nrat prong flfltheJ
Cke~ 1mI~,.j:
ean
determine <:obfJ,TeaIoaal
fntent by
Ullna "t.r.diIiI;
too1i of
.sta~lAtoq
eonsinlc:tlon.
II
theft
tbat
In~::
must be given effect. UuWFoorJ &
~
sra, 484 U.s. at
1~
(lS81). It'r on the other
11Inc!' ....
8t&tN
I. silent or ambigaolJa with mpect to
tlJ8
l~"
then We
wm
defer
'to •
-,ermfaaW
conaf.rUeUori of Ute statute. CkmPn. 4f1
U.S.
104 S.Cl at 8781.
•
•
•
•
lIJt Is only Jegfslative lnt.lnt to delepte mit
~i,
that entftJes- an asem=1
to
adyame Is
()ft .
.
~i
construdfon for ..mew uOOer the d'e&nmtla!.
~~
prong of
~
Su
CMmm, 467 U.s.
at
~"~:~
S.Ct.
!.It
2181...s~
MIf
Congreas ha=
apUcltly
k&
I:~!
for ':he agency to
nil.
Uleta
Is
an
exprea dciea&tionQi"
authGrity ... ' Sometimes the I£gbJativl!l
delegatlob
~Ir:;
agency 011 a particular question ts implicit
mther. tblt
expHcit. In auch •.
C83e, iii
court
m2.)'
IIGt wbsUtuteit.:
own COIls'mdlon
or»
statutory
pm"i!!ic:'l)
~cr
a
reatron~i:
f
I,'
Hl
mtel'Jll"'3taUon made
by
the Idminillrawr of an ageney."
[d.
Kt:II3fU
Citr
v.
D~med
oJ
HovriRg
&
UTban~.
!)2g
r.2d
~88,
191-92 (D.G.. Ch-. 1991).
(il1'eIl tJl'':
p!alD
and
unmfJtlbbJe
~e
of
lSactiul.
i!~(~lr(i).
~~
"!eed bOt procud OOypnd the fint st!p 9! the
L'h6tlro~~
l.l1uiye's.
SacUcm
m2(~
mcndlta
that
"wflbin
OJ:(:
~eBl'
after November
15
t
It90.
the Admi11fruator
~
. .. pnlf.'\u/gate stmtdards uBder ll,ls
!IedlQl
requirlrlg tbt.
new light duty vehicles .•. shill be
equJpped witb (OnveJ
!>y51ems." 42 U.s.a. § 'l521(aXB) {Supp. 1990) (emphasis
}
~dd@ci).
In thIs
C88e,
the language of the
relIJV3Dt
~ectlon
I
.
most
ORVR
msnifestly
IlYl!tems.
obligate,
&8
HswiU
EPA
tl
to
Helf'M,
promulpt.e
«i9 U.s.
!ltandards
460.
471
fer
I
tH183) ("shellItO is '1enguage
of
an unmistakably
mamla10ty
: cbaracter")j
Her Mo.j""
Iht
QIU!Im"
USBPA,
912 F.2'd
152:i, 1533 (D.C. Cir. 1990) l'shall" sipals msndatQlY
~tion).
Where
Ute
autho."S of
tbe
eM inteMed to ereate
f1
condi-
e.9,.
tional
GM
duly.
§
they
112{d}(9)'
r-.d
lLe
("No
familiar
allmdard
words
for
or
mdiomclWi
amdiUon.
emls-
S,,,
slCtn!; ... fsrequi.red ...
Ul1der
lhtuection
if
the
Adminfstra-
tor detP.rmines. bI rule, .ad after ronsult:aUon
with
the
Nllclear Regldatory Commission, that
the
regulatory jm)gram
estabJls.'~
by
tile Nudeai' RegulalorJ Commission ••. pro-
vFdes an ample margin
or
safety
to
protect the pilbfe
hllruth.")
(e:npba .. ris added); CAA §
1U~f,)(l'
It ("rne
AdmlnJstntor
shall l'rolnu1lf.lte a Federal implementation pl:m at
any
tiJ'fle
within the 2 years
sftet.
the Admlnisl.nltu .....
dl~pr(}Ves
a
~tatc
implementation pian sobmisslon
in
whole or In part,
um!1s!
the Sute com!ct.8 t.ie der1ciacy, and the Admin1slra-
tor •. fJprovC! the
piau
or re'lblon. before. the Administrator
prtJrnu!g;ti.es
sucli
Fedro.rd implementation pI8".") (emphasis
added). NQ Illch WOl'rls
oC
conditioll are bald
In
the eonsul-
lattO" rmjuirement or section 2G2(a)(6) that derogate from
F:Pt\'s duty
to prcmulgnt<!
ORVR standnros. Therefore,
~
>\2 tLS.C. E 74[2(,,)(9) {SuW. !990}.
r".n U RC
~
1Htl(c){l) (SUP)). 1990).
i
r
I
"
1I
EPA exceeded
itt ..
Mary
~
by .iMlni,'
tire
sWidank
Recognf.dng tW ita
o:!:r.
of 'preNllltt&in
to raacIs the
direHrltfal
.,
two n:.t:r
fJf
~lIe
Jeafsletiilri ..
~ce
of
ar~
em', neither argnilHld UbdmzdDa
the
~fmI
tion
plalm, mbeed
by
the
flaW
ptOnI:1Jtpf.e"
~tion
!02(aX6).
.
A.
Thp Conndt.alioa RequiTlJl'Mnt',
"
FIrs~
EPA argueD that
al~U&h
secUon 202(1)(6)
~~
8
mandatory duty, the
II<.'OpS
01
Chat duty
is
e1rcuGJ~iJ
the requirem0tlt !:Jlat EPA
consul~
wItb DOT.
tI~
ORVR
enfety,
EPA
argues
that.
the seetIiDa doe;
aot'~
how
the conaultatfOO requlremebt
"meshes" with
&N
,~:}
f~omuIgate
staudtJrdl,
thUD _fdng
the
a~
It
It=-. .. ' ')$11.
".
Nguous..
WI!
reject
thl._gumrmt
because
It
fa
p-emIHd;Qr,
reading
or
"ecrurultatbf' that would
effeetiYely
resd,~tilC"
l\alJing
II
"veto"
OVet'
lilY iPA lfJiou in
eamp~~r~,
statuto21 du\v to promtilpr.e ORVR standard...
~,t:'i'!
~
tcatrudfon
of
&he statute.
' .. \'(i;;;
" To begin with, the statute
~
pmkl.,;,!ijj
EPA
'''8hdi''
prom1li:ate sf.aadards
"qtterr.
cor:aswiaUtD:':"':i
DOT, not
":mbj~t
to" C'r "mhdlUoned upon"
tbIt...
~A
Uon.
1I
Thus. no $ubJtanfjve result
of
the
COfIIIlIlf.1IIUOlll.!i
comprehended within the text that mJght
~te
EPA'stn(,
II
EPA
hell referred us
to
!nippeb (It
the
legi'l.atllt.~er~fi
199D revialom to tile
eM.
In support
d
Itli
lIrp:lUlnt
.tb~;::f!:
~
tfqaircmem
!!lclll~es
the
"lhori~
to re&set4;i.!,
OlMl standards.
~
"8 .. lSI
Co~o.
REe.
It
S_..
(~;';;(
Oct. 24, 1990) r'Sanmeq of HooM-&nIJte
~~;;,
on the Cmn
Air
iuIt."
dJmJttad
by &J ..
tR~.
'l'JIi>8
I
meAt. on wtdleh EPA RUes are Jaolab!d 'M
Inconelud"r~'
a!mlls Elillnot bl read to eut doubt ClIl. tbe
~lear liw.tuWr.)i~;;i
In 4lly event, tJu;se !mlated Il!af.ements are
cw.~~.';'1
stat.ernenb indicadng
that
the
llaiot).
comultidOil requ!reMeIt.cii
cerda EPA 110 authorill to withhold OaVil I!bRdardl.
S."
&~~!;:
R. REt. no_ 490, 1019& Dong ..
~d
8«u. pt. I, at 303
(1900t.ij
.
",:,
~
18
~ry
duty to
pmnulpte.
atandarcb:
nQ det.ermfnatfqD
Is
no mWmal .... far r:lt'o\)' h articuJaled, ad
110
_ 'cular meuva
tW' PIll,.. of tU
eaaua1tatlon
ia ........
lit dou
111)~
oea (hd ORVR" CIIQC8ZDI will __
be
lldretftd. Bectlans
-taJClJW
ad
.• 814>
of
the,
Aet
:-.r..idp. fnr a fats- t:'iIt'tttbUon prOCMI
to fIll!l!fe that
lJ)
tern
wUJ
be :nstal1ed
in III
atltGnlObDe for elle to the
patine
."ie35
it Is safe. 4! U.S-C. §J
15P.I(a)(3J(AJ,
1521(1)(4) (SIJPP.
,ill
0); su. 40 C.F.R.
Part
86 (raplak1rJ cert!ficitJon
't,C€ss and slandards). HoweYW. thb safety e-ilJuation
~rnes a~
a fater •• ge
in
the hnplementaUon of
olSion
l~trol
systems.
It
doe .. not sIfed the duty 00 prcmuJgate
'md~ds
in
the first
Jn$tance.
Read in tontm, the cenb'al
ptllp.)lt
or lEdlon 202(a)(S) iz
)
iJnpo~
regWlloory
~
!or
ORVa &yatemJ
OYer •
lv,n and detaUed
t.im8
&me.
Inwted
parenUtetbIJIJ
In
~~
structure
fll .. requirement
tUt
EPA eonlUlt with DOr
Egsrding ufety
I_a.
Coatdr1 to EPA'a mntentlon, thr
~
that. !.he OOt!
oomnlt8Uon
fa
m91"e17 adtiIoJJ doeI
no~
~ake
it
~el!B.
At
leaat
t;9o nWJm
for
Ibe require-
:enl ar!! appllent:
fin&,
the procell mJabt. have been meant
) provide EPA withe
beUer
Aare,..
oi
ftrious I)'*'" 10
tilt
ORVR
lJ~ndazdD
might acauratlq conrorm to Immfnent-
•
~l"l\llabIe
tA!chnoiogy;
COJIvel'1leiJ, the proeess mJ,ht .llcw
PA
to stnJcture
ltandards
that wiD. promote the
design and
:veJopment
or
safer BJStems.
In any event, IS II
mittel' of
./ltutory eonetroct.ion, such. genenl
~uJlstlon
craUN will
)~
normally render rmgatery other I!UbIt1u!t!ve Z'p.qulremeob
. II
statute.
Set, &11 .•
NaMnl RafAj1'Cet
Drife-MB
CoImtit
't7.
ra.in., SIG F2d 692, 704 (D.C. C'fr. 1974) (consultation reo
lireman~
in fedual Wa.t.er' Pollution ContnJl
Ac~
did
net
ldermine a mandatory
dll~).
So here, teo. we
find
W 'It
,es not C.1iT into question
the
exJftll oomn".and Gr !:be
!cti01t.
Further, the stnJeture
oJ
current section 202(a)(6) stands
I.I;!
;\l.ll'
cor!tmst
with
th:st
of
illS prederessm-. whlcJi requirl!d
JlA
to
de(ermw gh8 fealibi"" GlZCl rhsirabilit,
of
ORVR
;01. to
pl~mulgatin8
OJiVR ItMdards. In the former sec-
11). it was lIecl!!lsary
Cor
EPA
1.0
determine that such sys-
t
18
,:'
.
,~
__ v.e
•
.te ••
~
iIil.i. to iM;
of
~RVB.tIndardI.
Tbu,
ftwU,lriiIIItJ.lI:l;
.~
tMt Ei»A 'eardIIa ...... ,fIi dtddiaj
DOt •. Im ......... I.,.. .... ORVR"...
h1I the
d~ ~
fa tile MfI
J
greL'l& .... an umDlltabbte .......
titat. the
requirement Is
not to
be tUleO bt
BPA
to POkt ft8 obJllldi\
to promlllRQt8 8Candardl for.ORVR
1)'Item&
r
It is
Irn~t
to
note that th!I !s
.not
a cue
In
t-*
has maide an lnetahlbie
JIndJna'
tW "Q
ORva
an_''-
.:.lk
be
<k.velopld
fn
Che tcrneeable Mara
thii1
(J?P'
Bath EPA and NHTSA restricted.
their
analysis or
tflarcoal mister 11Itemc stmlllr
to
thOle
Ul!!ed in.'
evspnUve 1JICieIn.. 51
Fed. ReI.
at J8,2S0. Eoth.
mionaUzed thll
IttnttatlOIJ
by paWtul
ODt
t.heem.
nature of
otbeI:
ORVR
t~
S,,.DOT".
(other
~Joale'
not
avan ... ror
8vlJ,t.&&tIoa)i
at
13,280 (EPA
did
not eomfder "undevelgpecl
Jogtlelr>.
Yet. tMt
narrow revfew Ie not defendlloc;l"
(ada or thit
~ale.
Fira~
the lltatute
eJeM'b' caU, for EPA
to
evaluate
"systems." The
QIe
of the p1tttal
~
any !mpWtOn
Conpas lntaded EPA to
e~
onJ,r ORVR
teehM!ogy.
Cf.
.A.sllociatitm 0/
Am"; ..
Roihatk
1o'~
562 F.2411310, 1316 (D.C. Clr.lm) (refm!nee to ... .,meD«
IIPd racUit1ei'
In
Noise Comrol Ad at 19'72 &neGl!:1plnes
tId
3uch t!qllfpment Md r.efltU"") (empltt.ms fa 4lI'fshva1r,
tal
Re~c~
Dsj .... e
Comtci' \'.
TJ8EPA,
91lt"?9-A-'I'",j
lsio (9th
ell'.
Ul90l (use of phn' In Clean
foreclosed EPA &om rl!8l:rictinr the a«Ip!
ot
Itt
W~
lave previouil, bOied
II
drs_lim
between
En the eM.
that are "teeltboJog.bued
ll
d
tlloae
"ab.~orub:·."
SH
PoJ:ural RuOfCf'Cq
De~
cmmcU
a
PA,
6~.F.2d3JtJ,
~&
U2 nJ!6
(D.c.
Cb-.1981).
Til_to?: .. ;
gy-bssed
provfaloo8 n!qlIlre
EPA
to proUlulpte
;t~
only a:tAtr flnding that the
requJate
technology
eldsb
w
mar'
be reasfbly developed.
ld.
~t
322. A!»olute stm:Iarda,
lin
the Dlher hind. require eomplisnee
with
mellton!.r.'.Ji~
20
s.:rlbed
lbUJdaf~
and Um4 bt!Ies.
m~ve
of preMnl
:eebnologiea.
Id.
Abscdu" staDdarc:,;, preaama
that
IndIIstry
ean
~
dli1}8R to deveJop 1M. requbJte
~
II 1n
Uris
~se,
the
~p.
ef the word "syete1lll'" In sactlon Z02(IlXS), b!
tDm.':r'1tifln with the statutotilJ ftmi throe table, I:ndlestee
i
th!it tH3
pI"QI\'; ..
iun Calls
inf.,
the "&bsollde" eategory and,
henc~,
iii tcchno:vgy.fcnlng. There As mthIng
in the
sect1c.n
wnttanttng EPA's deel5fon
to
limn
Its consideration of ORVR
to
a single
ex.laUng
teclmoloi1.
M~'!'e!Jver.
this statutory
'eommand \\'!13 oot.
EF A's
pruCatations to the contm')'
not-
lvilhst8ndiilg,
unre~nsue.
While it II
ti"Ue
that .btrnaUve
tont.rol methods are not produetion-naill. severa! are beyond
the C(JhCeptuallzatIon atage and shwld have been amenable to
cl'lgineeling evaluation.
, For instance,
'fI!lpar'
colldellSE5'l
and
vapor
combulitenl
have
been considered as aJtemaUvu to cznbter
~ntaln_t
SYII-
{ems,
~md
boUt
were wf6clently developed
to be the
nbJect
or
i~st!gation
hy auto 1DIlUfacWterI in 1988. EPA Draft
at !h1. Perhaps the
mlli~
prombinl alternative to tanutu1l
are till' Jlreviously mentloned
fleldbte fuel
blu.dde~.
1'he
l'e('ord il\dlcaoos that thIs opl.Jon his
been
f'Xtensively re-
searched ami that EPA. had IIlCarmat{cn in its possession
tour
years
ago tendlns
to shaw t.\at bladder system! could be
prodnction-Te3dy wlt!!in one or
two yeal'!...13
There is simply
l2Thi-l
r;:sui13 in tha
10
~Ied
.'teehnolo81.Cot'tITll"
~b.ra('ler
of
Ull!
CAA.
s~
Union.
,glee.
Co.
u.
EPA.
4Z'i
U.S. 241.
251 (1976):
Nahum
Re3/mtee:J
lHffrm C"ouncil
\I.
noma~
Sl5
F.zer
41~,
.a9
(D.C. Clr. 1986); ..
&:!l!o
116
Qxf<l.
REC. 4U81, 42.SB2 {19'lO).
(elajrn~
of
teehuotoc;csl impOAibllt,
~t
sumMa!
to
avoid ,tan.
dards lmder u.e CAl\) (CilllllW!llW
01
Senat.cr Musldl!).
It.
r. [he
nn;""ii'l of
~ehntlr()gy·forc:h.
IPItllDlll thit lethnlca1 prub1emlf, in-
I
eilJdl'lg those Invo.iving adetu, Ire froned out In
tM
cobr!l6 of the
st:d\l[(1l"ily
spurred
pnK!I!2lS (If
research alld development. Jt
IB DOt
Zlm:essaI'J. flt' 2ven anlIdpated. thlt
req~ed
"stellS wlD be ab!O-
!"tely
S:'Ire
ret the
prof.()ty~
sb~
or developmcnl
Il One cO"'JY.m,r's test:s Jno;.ratm that It is posslhJe to., titslgll a
«mtai 11m m! bl'lddell' tbat. would ,ignIfiCllDtt, reduro Itee
~ace
;nt.o
h'hich \"apor CS') (onn and thus rcdlJl:e the nfed for c:arbon ca:list.ens
Ie; c!I}Jl'lre the eseaplng \'apr,r.
&e
Leiter from Jeff Brosdh\l1'st.
..
ru.
no balIl! for al to
~
that eusrea was
f1~b" b~rs
repraented
I
p1atuihJe
~,
eoaI
~t.II
or 'uw.
~
,did.
no~
camida-
ihIin
In
prom~ oava~:
No. 22'8, lOIat
Core .•
M
Be ....
(l9OO)
f.lelClble
ft.-eJ
b!rMlder
alternat!ve); 'tile
c8:o
81,176 (bladdem noognized at an aJternstive
3U02 (bJlldders may Improre fuel 111ltem
Uon. at least
two
other QZtems ham been
h"potbl:!Ued
migbt eliminate or .reddee mll11
rJl
the
.. .. . .'. '
EPA perceiyed as attendant to ORVR c:ammr
~
U.s. Patmt No. 4,880,135 (Nov. 14, 1989)
(behW.
KemoraPdmn from
Katen
Lostoski.
Meeh~
EPA, to Public Docli8 No. A-81-U
(Sept..
9,
cloth
IS
a
BUbaUtuW
(er granraWed activated
tll.Sll1ters),
~t,d
(7l
JA
It
527.
140
Thua,
In
afety ana",,!. to
I IID&le
type
of
ORW natariL"
dIsregarded its T6SPOhlibflfty under the Act..
I
Moreover,
~
rupeet w OaVR
eanistlm!r it
thai either EPA
OIl'
NHTSA. cnncluded
tical
thete
-
Incapable
eX
being
'
made ?'ocucma.bEr al'e.
II BsUII'II!I".
D!Iip DIrector, Dawt1 Weodvll!e PoI.Jmer, te EPA
~c.d
in
J.A.
!it. 619. Tbl1
~
projected
Ibfadd'ul could be
ev.ttuatll)b-lt~
witbln oue )'eIQ'.
ano!her rue! cell .nutaetlll"U'
~llfmed
toO haWl
~
vi
a
n~bJe
bhlxidor t.ank,
both
to rwl rupture Ia
red!lCl8 h,rdroear!:JQn
~()I'1s.
s..
Sda~
1lI11J11.l1'at:t1lft:t e1.::ifni!..'Id Chat
U.
"cwti
be set
up to.
YlI4den
with ..
a HUh
a~
III
montl!1l
lead tlmo.
Iii.
14 Becanse 01 higher
woat~ng
e9ptdtJ. ctbcia
aIoth
could
cantlr
redaee
the
me
01 ORVIt
~
rand hence
.
C'
tbb ere
associ~
with
~
eiUlJIt.er _.\-..
dtance of Impw:L In a
tn.-l1_
weU
lIB
gre&w llUlIIMKld
loss on Impact). Note. Uaoqh, that tM
p!ISiUyo
"'tfal'l~iJ1
twaen eal'lilter rim and lire risk \WI8 an 8ldmptflm. Mt
i
of the NfiTSA stud,..
~'V
J~
Unde: &ectlol! !C2(a)(4) or tho OM, EPA ls charged
Ildth'jh/i:
'l
lI.~
rosponslbility of :r.eeftl£ that 110 etulalion cootrolll18tem
Ie
fa~};
\r\'"
.,\
P?Gd'lction ftlidea
Ulat
woulfi "cause or tomtrlbule to an
--------------~----------~
22
......... ...
Pens from
the
record that both EPA and NHTSA balanced
tile risks ulei benefita of 01W8 agaitlat the
ri2b
am banefitl
nC
Slage II controla.
sit
DOT Ala_ment at 3 (NHTSA
\lclgJled avalllbUtt.y of
8tIp II
amtrU
in fis
ORVR
l8fely
aSS<!Slim~t};
51 Fed. R._ ct 11_ (EPA c:onlider. the
aftDabiUty Df Stage II controls interni to dec!s1on);
au
also
icl d. 13,221 (NHTSA oonc:luded that "some rllk" was mher-
en~
III
ORVR
callister. t.U& was not pnlsen' in Stage II
centrols); Letter hm
Jerry
Ralph
Cul1'Y.
NHTSA. 00 WU-
m.m G. i{osenberw. Anistant AdmbJiltrater
()f
.Air and RadI-
ation, EPA (Oet. 31
1
1991) ("atlB
wefgirlng
the aJtemative.a,"
NHTSA WO'.dd find ORVR an unreaaonabJe
sare~y
rJak),
r!:?rintcd
in J.A.
at 464: EPA Brie1ing U
9a
(relative effec-
tiveness or CRW and StDp II controls);
If.
61 Fed. Rae. at
!3,Z!'3 (esflister
.tellll
"potatiUaUr
sWject.
to additional
t;aUnre
modet~
<entphuls
~dded).
This reading Is
borne
out
tiy EPA's expiauIIon
of
ita
ftnU
adfon that the deeklcD not
to
lloomulgale ORVR 8tanduds WII 'he&v!fy dependent upon
Ute
~y
a1Iai1abiUty.ofS!lse II alDtrols.
S ..
U1 at 15,230.
AIU)ougb EPA finaUy c=e!uded that canlaLer
bHed
syr
tell1$
Pre!ed.II~ty
problems whleb lin not "entirely eapable
of resolution,"
id.. nmdl of the
data In the
reccrd
directl1
contraYeIl.C!l this aaertlon. FGr mstance. NHT&. Isaumed
lhat ORVR canisters 'WOuld add eomplexJty
to
current fuel
S)'Stem3." Yet,
the
EPA simple prctolJpe proved that 11 was
Icn5bie lisk III public hlflltb, WQU'are, Cf Bifely." 42 V.8C.
§ 7021(a)(4ICA) (Supp. UlOO). EPA ..
~umed
thzt
its
d!a~etio"
I
under seetioa 202(11)(6) wu a11l9 mnwred by thJs Elandard.
Su
6T
FctI. Reg. at 18,222--2S.
IS
n is not. clear liaat compJaxit,)' Sa
JA
evil m '!£elf, bloat
(It
the
I!UComotivt)
J~
Iu ftCIm,..,
has added lubstaDUal com-
pJaxi&y
to
~
YIIIfe!ec
wD!mt.
a notiuable degradafIon
01
sar.ty
(e,r.,
flat
fI1JecUoo,
~
Ignition. antJ.lock brales,'
ak
bag:s. aDd
ftlrnputeNed
lNlnnc!mf£Uoo), Sc. APC Commentlat:C
(IAownward trend
ill
nwnbar
of .... per
lllGuAnd
aa~
uashr:s since 1S'l4
~ ~e COlra~
bI.c:t .... over :.he •• me
pC!ritw3)
(dClng
Nf~
fl,&Or
VtiiJcle
Ffror; in Tramc CrubcJ and
$.he EfffC13
ollht.
Fuel fbo.telD bCe!r.ity Standard.
001"
US
tmi
(New. I9!O}), Indetd.
many of
tM
1Wll9
roncerna reprdlng the
JJ#
~I
~~
r
"
23
.,:':,;::\::;:1::,
?!~
~t
least
pOlisible
to build a &implf.) ORVR eanisier
6Yitem,I1~\~~'r;
iaQl'fIOVS5', the arl"'ytlcal approal!h uied by NHTSA cantains.a ..
..,;,it
JOpeaJ flaw. NJ:lBA's
tellf
seem to sho.u'
thr..
ORVll
JPa1:<:.,~
inl!reaa8
risk 1Dlder
a!JUiIl'
w.diUons"
However:
NHTSA:<~~,
presented 110 data 011 the BkeItwcd or t.iIC:se Cqp4titi0fl8 ellist •. :.,.: .•...•.
\.~:
Ing
in
the leaT world. There.fcre, It Is impQS8lb1e
to mCIVc .
"~:
directly from NHTSA'. dllta to EPA's
co~luslon
tbat OB.VR,;,
unblen pOle
••
'flnTelUo1/4blCl
,risk,.
.
.>:.li:
In additklil.
nUInY
of the
bl~Jefils
of
Q~tVR
that
lIIerlJ.:,y,:
l
recosnized
by
EP./( in ita 1988 dr:aft report were lugely<::}
ignored
in
Its final determmaUcm t!lat ORVR Is unrtUlJDlbly.', ..•.
';;r:
unsafe. For in81anee. the J1llmber of .service statiGtl fires
f,,'~i:
1lil almost certainly be reduced
by
ORVR. . EPA. Draft. at 4- . :::;
I. Second. repeated or prolonged cklrmal ccnfaet ",nUl Uquid
r!:~:
gasoUne ae lo splllaae
C80
be reduced
,by
O~VR.
&hUB .
::r!~r,
relieving the resultant akin lhitllUon
:
•
and dermatitis.
S~:icir.,i
/
I~!'>'
',' ':
risk of
!bore ccrnplex fuel
AYtUmr.
wore voiced. fifteen years
ago,~":>i;
with
reprd to tlYlI,oraUve cootrol i)'8terQ8.
Cf
88 .... d. Reg.
~A11\
arm
(additiOllal,at'ew
telLl fnltJl1ted by !lH'l'SA
iJi teapon.e.I.o.?,,;::
C!da~
COtl1Jjfler requirement). Yel, those fears ttave ptOven.'A;
anrounded. Tbe Center for Auto' Safety (' OAS") Pll'fonned
1l~I,'SJ
~naIyals
01 NHTSA'a dab pertaining
to
U:e tJirse modlfi yean',:>
befDre and! after 8Y1pol3iUYe
eol\trobl were
~ed
which
aaemlltD .;;
ihow .. average
dmNH
or
U~
In
t113 taLe "f'fires In paMeRiler':::!',
ar emhts .nero ",.paraam ealllsleA:a we'll'! required. S,.
Slall:-~~
.
meAt
of
Cll1.ronoe M.
Dltlow~ Dkec:t~r.
CAS. bdpre th8 EPA at
",p'
(Sept.
26.
1981) (table)
[h.rfi~1R
"CAS
Siatemelle'L
1'8prhded ill",
,. J;A.
it
('l8..
'Fbu" die
assumption
thal s.d:ied eonlJl}eldty means ' ...... r
1 added
risk
is
itulf
UPUoua.
...... - - -, .
If'l'tltlni
IUU-
that the! EPA
almp!£
aYltum
III
not oon'lllclt:b " .... , .'
UupracUeaL
q
CAS
Sr.ateClent
at
i
('1I!M~!e
~id n()~
exhtbfl .
fledormaMe probleras dllring 600 mile evalu;illo:\}.
18
Tho
NaConll fire 5JK:ident RqlO! ling
ay:tl!l;l data
b ,I> ..
'~vaal:
tl'Iat toaar to
iIx
~
of al oei',,..: .tailC;l !ires p;'.; ,,;:atc
ret4aWt,
erntasi_ or
aplllag.. 'INa
amoultitl f"
Uli to
J~"
[,1'11"
I
year. EPA DraA at (-G. ORVR l,)'IMrtIa IlOUld preY.llt '" 10 !II
~ffl:e
iiatlo" fire_ each
~fjar.
Gr about
3~
¢f
the
lIaUtili!
to!al
if!
lit.
4-7. &ale II (ollUoll will &l1O 4ilet'ful'J
Ute
S1.IW'aber. c
~
. '.:
actYka sbI!ion ftrea,
S.t!
DO'l" Review at
2{i,
~~
.
I
~~;
24
at 4-12. P ..... baps
most
aisdificanrq, ORVR may help hlwer
fuel lank p!'eSIUl'U.
It
Greater!ue5 tank preazure leada to,
amcmg other
t.Wqs.
fuel diapardou
w tuk
ruplure aeddents.
ORVR
can .... 1)''''
wwJcl
require In (nereua
in
the
&tze
{If
the fuel
tank
wntfna oriftca ...
thu8
del:na18 fuel tank
pre!lIU1'eI.
let.~
4-14. Finally.
under
operatillg coadfLiOnl,
vehicles lOmet5mel crate wperl that exeaad tb.
elpel!'y of
eurnmt
anpo1'~
eafaten JeId1r.,
to 10
caned "break.
through" and the
AepIJE at
vlpOl'I int.a the enBfne compart..
lnent. Larger eanitt.en
in
ORVR l)'Items wou1d capture and
.
(XIntai~l
thBlC o;apar ••
In short. Ute record a3 a w.bole delis JlOt. !lum.tanUa.te a
iinding
that
ORVR
aystema
preltnt blberent and
\lDl'UlQIl-
abl/l wet1
rlW.
mat
It
&v u lltlt BPA hal dedcled &IIat
,
S.
ORVR
11
clllllter
c~
I)'Iten.
an G acble
.;.
aot
dmulti1l8.
wcdk
the
"*
Hcrwever,
,bm
even
that
. wete we
to
Iccept tbat
~S1
left lome ..n amliur.t of
dimeUGD
~
tba
.~uta
for
SPA
to
decifDe
to require
OBO
if It Coand
sud!
iyatema
UDmsonably flawdous. that
AeRo
)
tlon
\f()'llci
be
CODItI.ed So
a lneuurement of
the
safety
.
COPIideraUaoa IJ
Oil'"v"2 alone. weJ&hed agalnzt. the
fnC1'~men.
1
.WOo"
tat envinmmenta1
:""" I!PA'B
prGtettfon
ballmcUrc
that
or
ORVR
ORVR
QItamI
.canltte
would
.. Ill ....
pro-
'
~'1Il
the pal decak _verti
eldora
h2\'1i! ccntribllied t<I',n
overall
loease ill faJ bulk
opadng pl'Ullll'eS.
~O:'ii
the
faetora IN bigh vo.Iatflty
~ ~lIed
rud
51Itern pmN'e!
IN!Oe:S8ary fIJI' tIIel
h\lectiou.
~on
of
heated
1\Ie\ ta Ute
fbtl
tuJc
\dJicl'l
IlDhImctl
rutl
--!*Ilion
Ibd
hence Sank
2re.lQ. and
Lbe
sa of emutel,r
ad
dtlllMCer
~
or:tOca
£0
fOlllaiu
!quid VIfOl' w1!II.iJs
thl!
tank fa
orar
00
met teden! emiS3ioM
alandardl.
EPA Dl-IA
at
4-1l.
'Dds
p1"Oblem
has be.eA perII.aIIJ
.-eJJoratlMi
~ ~
IBIMatad
N1Ddlana
In
&e1 volellH1)'
raUngii.
SeI
VolIrJlty
ae,alatlollio
S Fed.
Reg.
t3,1J68 {1990}.
. !II EPA recupIAd
!n
ita FiDet.Acf:ioD
that WI:
woui~
Ie tM
SCu!drimI
ap!aIf
whlda &he -r.tnllllenea"
fl! the
riab
.r
ORYR
.
~
be
._Uud.
a ..
rn
Fttl
Reg. at 1USO (Afel, dW
no~
In
ablO!nte bar,
bill.
~uat
be
wtfiMd',
catnlt marp' tmisa10D COlI.
, " • I
troD. HOW3Rr, the
aU",
aral~ ~
on
Ule buls of
nteaunllg
ORVR ....
Slap
U.
"
Su,ge II cantrell would sUll
25·:1~!
lJ,ij
~
inapproprist.: balils
UP(lU':}~:';\
which tn deelbte
to
promullste ORVR ot.B:Jdards.'21
,
'ri~i~
B.
TM
lA:pIe
of
~,
II B'guiremanta
,',,:'t.-":'.':
i:~~i:
EPA .0 IrgtSel that _100
~2(a)(6}'s
proviaion
rDrthetll::~
tapee
of BUlge II requiremoota when EPA
promtllgateci~':i
oava at£ndards ereatel
~.n
....
biiWty
that
wamntn
dd~'p:;:
enc:e
to
the
ASene.r1i
interpretation of the .tatute
undertb4::~;i.
llilcond step of
CMW'On.
Sptclfltall:r. section 2fl2(a}(G) l'ead,':&':;
In pertinent p:u-t:
.'
..•.....
~::
The requirenumb or liection 751la(h)(3) of ChisUUe"!i.:'.:
(relating to stage
II
ga&oline npol
!ecG'Iet'Y)
ror
.lI
lC8l1i
/";>J
clulllled under mUon 1611 of
this
title 16 moaeraw{Or.:;,:;
ozone
nil
run. IllP""
.~r
pl'omufgaUon
of
aucllaWl. .•
!(t:'
dR. and
Ute
admlall'lt.rator may. by
rule,
r6f!ee or ,..81vI:'I:/')
the £pplk!ation of tile requirements of a.eet.icn
'76Ual.b}(3»';~/
of this title Cor area c:tetalftsd undU' section 7611
d
thi!.;.';::':':
titie IS Serio ... 8e\'ere.
or EJtrcrne
lor MOlle, as 1PPl'GI:.:
i
;i,
plate.
del"
ncb time as the Admlnl3trator determ{no:
t,ii;;
that onbOJrd emisllon&
conUcJI
IYstems required lmdel',</:'
thi. para.graph are in widespread use lnroughout tl'K',"'i:P;
motor vellfl!la neet,r!'
','\,1,':,'::
~
U.S.a. t '1521(a)(6) (Supp. 1990).
The
effective date o'
t"!;"":'~
Stage II requlrerneut8 under RCUon 162(")(3) or the Ad,
4:,~:;:::
(I.S.C. § 'l51b(b)Ol) (Supp. 1990),
i&
November. 16,
i~~.
ani',f
year
after.
the data by whfclt EPA was ob1!giWtd t.o
prQITt~l>;"
"
pte ORVR
atanchlrds.
EPA concludes. fraD) thhl
J..b~_~Il:"
greas provided for an alteml1tlve pollution ccntrol S1stem 1.',:
the er.renL Utat EFA determined that ORVR II
uwsar~.;';'
However,
this
rellomog relies 01: s specwus readl.ng oft" "
atatutory language.
SeeUOft
202(:..)(6)
.
expr€SlIly provfJes 11
'
I
Jl
Ja eDIlciwUn,
til"
EPA'!
ba"'a~I
.. ' ap., ..... :.
'fI'"
l ..
,.~
I',,1Jlill ..... :.
I
with
the. 1JWldalol1 tarmI
and
tochaoloD.ltJrems
jJ~~nl
'.:
t
~a)(6),
'M:
.apreM 1\0
'llMW
on whether, ahou!d
D02M oav '
Ceclrlciop zeadl the I ")(4' pt'odw::&lon eerWleatl.oti ibJ'"
i~
.. Itt properly
eoualder as
pari': Ks. -rid:
:euonabtene$l" Wet
:0
tz'AIlt
the aVlilabli!.1
cl thQ St;go
J~
tJte:rnaliYe.
A
,
2S
l!>~
tel'minatlon
of Stqe n
requlrtmcnts
after
ORVR,
&tan-
dard3 are promulgated. not
if
they are promulgated-the
Implicntion dart, bein« that ORm sbllducia
will.
at some
future time" be p%'GmQtgated and tha, Stage Il
will
become
unnect!ssar,r
in
eedafn DOlIilttainment aru! at thlt time.
Thf'l Stage n
r~qu!rem9nta.lbe.nt
are not 10
mum
an a!te11l11-
live to OR'\I"R 31 the.r are III interim meaSure
to provide
ernrlronmQntal protedlon In Uta event that ORVR standards
roe inexplicably det.sed.
This "f.lll.blcl<'. apprcaeb does not run awul
or. al1)' or
cur
stlllJdarri canons or interpretation. To begin
with,
there is no
dil'ed emmet betweeli the
~
related sectlcms or the CAA.
If
ORVR
standards
had
been
jlnlmlllgatEU on
tUne. the
e~llge
11
requirements in moderats
~nrtienl
areas
woufd
merel.J
have
beea
~rllucm!.
On the othe:, hand.
tr
EPA mfaed
the
Iitr..utGry
deacDme-a it
In
rl«
~
"f!POf
emis-
sion control
~Id
be
~d.
AJthoagh perhapt Qoe
tbe
most
eIe~ ~t
it wu lilt
ameaonlble raw Con-
f
gress
to
provide fOr oodingem enftronatentl! protEcltfon in
the
even~ tha~
EPA m!ssed
the
atalutc!J
dead)~
given
EPA'$ rea>rd wftPt
reprd t. fmplementlna
the OM.
StIS
N!We
v.
~
80& F.!d at.(ll (EPA -behind the 3batuto-
ry
Umetable" of the OM);
Sima Cld
1',
Califomfo..
658 F.
Supp. 165,
116 (N.D.
c.r. 1987) (EPA bad
'1~dIRl
unwiUingna1f8 to comply
with-
the
CAA~
BN
aUG
laG CONO..
RRC. S2,.(36 (d:llly eI. Mar. 8, iSOO) ("(1']he
hlmry
or the
CIEsn Air
Act.
de.mOMtr&te8 Chat we cannot rely on EPA
~
follow
through
on
'BYel1 U.
mandatory obJlgaUoim.") (stace-
ment Gf Sel1st.ar Liebermrm). ThuI, the overlap between
SetU()118
182(b}(3)
and"
eoo(6)
denmltrlles no. In amhfgu-
fly in the atatute. but
~ pe1ld~
in
providing
far
fcreseeable admfnlst.."atWe de1a,L z:
rl
This
Is Dot
Uie
creI!J
dt\iee 4Jf
Ita
tJPE
m
(he
eM,
As Cengre.,.
lIJan WQlmllla has II!'XplPlned:
AII[
) imporWilt
6X&mpI~
b,
the
reqol~ment
I'Ol'
BPA
issl»mfe
or
fII~;m~Jm
adIJavable ecmtl'OI tedtnoiotl' (MAC1') reiU/alions
[01' Inljof IOIJfCI!S
of
IwwnIOUI
aU
poUubnb. The
1"I!g!IreUon
of
hauroOllilll air J:0Dcta:nts It. 'lIl"area
wttera EPA's track
~
:\:,:;iiIll
27
J
:
i
.,;j;\
It wu IlIggelted
at
.:11 araument that requiring
EPAto·,&:,:~~:l
pl'Om~
ORVR standards
a~
thla
Jloint m time, now
~f:\,::;;~
the
deadb~6
haa p.ssed and
Btase
]J conkols hive
~':,~~
matJda!to:ry in moderate
and 'MI'18
non«talnmenL a....;0i1:
~c!
bnpose inefftcfent
d~blMontrole.
In 1IWiy
are.S;. .
yl\t,:i;~;:
thll IB not
&ndaaly
correc~
dnet overlapping Stap 11 I.':r..;:':
ORVR controls wi!1 ncal reaalt 10 eqmplete Gup1!eiUon. . Alii:
EPA
uplained tulls
FfNl kllon,
the
oonet1bl
provid.db1.'/q;:t
ORVR
are
smalls at
first
rmd
mere#18
aa deS
~:: <~;:
OCCW'S.
57 Fed, Res. =all8,2ZS. Even
by
t~e
most
~le".\;:
:view,
It will
be
wen Wn
the
twe.n~1-firat.
cenWl'y
beft»'ea'.~,;:
sllbstantial
porij0~
IJf the sutomobiJe DeBt will
be.equt,ped,!1;:;
with ORVR
ibel
flYstemll. 8eB
id.
(;It
~1It
ten
years llrltil',;:.':\;
ORVR beCOMeil an «rectlve controQ.
Stage n
contrail wJU::.:ij
previde Important environmental protectlQn in tile
areuwUl!?)(~i
tbe worlt ozone aceumulai!!>11
white
!bls tumover takes,J ..
...
';::i
l
in addJUOll,
by the
terms or
the ..
tate. ORm atancimbWll'.:.;:'il
only IlPpAJ to lIghWut, nhldel. Wha_r bwesbmnt
hafi;,'\,
