PM25 Designations

PM2.5 and Regional Haze Implementation Programs 2005 Region 4 Regulatory Modelers Workshop Atlanta, GA Steve Scofield EPA Region 4 Air Planning Branch March 9, 2005 Particulate Matter: What is It? A complex mixture of extremely small particles and liquid droplets. Hair cross section (70 mm) Human Hair (70 µm diameter) PM10 (10µm) PM2.5 (2.5 µm) 2 M. Lipsett, California Office of Environmental Health Hazard Assessment 3 FOR REFERENCE PURPOSES 4 Automobiles, power generation, and other sources contribute to fine particle levels Cars, trucks, heavy equipment, wild fires, waste burning, and biogenics Example Area Carbon Crustal Soil related chemical elements Cars, trucks, and power generation Nitrate Sulfate Ammonium Power generation Fertilizers and Animal Feed Operations (with SO2 and NOx, forms ammonium sulfate and ammonium nitrate) 5 Particle Composition Varies 6 Public Health Risks Are Significant Particles are linked to: • Premature death from heart and lung disease • Aggravation of heart and lung diseases – Hospital admissions – Doctor and ER visits – Medication use – School and work absences • And possibly to – Lung cancer deaths – Infant mortality – Developmental problems, such as low birth weight, in children 7 Some Groups Are More at Risk • People with heart or lung disease – Conditions make them vulnerable • Older adults – Greater prevalence of heart and lung disease • Children – More likely to be active – Breathe more air per pound – Bodies still developing 8 Fine Particles Reduce Visibility • Example: Chicago in the summer of 2000. – Left – a clear day: PM 2.5 < 5 µg/m3 – Right – a hazy day: PM 2.5 ~ 35 µg/m3 9 PM2.5 Designations Nine Factors in EPA Guidance • Emissions in areas potentially included versus excluded from the nonattainment area • Air quality in potentially included versus excluded areas • Population density and degree of urbanization including commercial development in included versus excluded areas • Traffic and commuting patterns • Growth (including extent, pattern and rate of growth) • Meteorology (weather/transport patterns) • Geography/topography (mountain ranges or other air basin boundaries) • Jurisdictional boundaries (e.g., counties, air districts, Reservations, etc.) • Level of control of 10 emission sources PM2.5 Designation and Implementation Schedule Date Feb. 2004 June 29, 2004 Dec. 17, 2004 April 5, 2005 April 2008 Action State designation recommendations due to EPA EPA letters to States responding to PM2.5 designation recommendations EPA issued final designations Effective date of designations PM2.5 state implementation plans due* * Per Omnibus Appropriations Bill of 2004, state implementation plans for regional haze program are due 3 years from promulgation of designations. EPA encourages 11 States to coordinate the PM2.5 & haze plans & intends to review these plans together. PM2.5 Designations Summary • 47 nonattainment areas in 20 States plus DC • 95 million population • Comprised of 225 counties (191 full, 34 partial counties) – Of 34 partial counties, 26 included for power plants • 5 unclassifiable areas with 7 counties – Greenville, SC; Muncie, IN; DeKalb county, AL; Etowah county, AL; McMinn county, TN – Will review 2002-2004 data for these areas 12 PM2.5 Nonattainment Areas 1) 2) 3) 4) 5) 6) 7) 8) 9) 10) 11) 12) 13) 14) 15) 16) 17) 18) Athens, GA Atlanta, GA Baltimore, MD Berkeley Springs, WV Birmingham, AL Canton, OH Charleston, WV Chattanooga, TN-GA Chicago,IL-IN-WI Cincinnati, OH-KY-IN Cleveland, OH Columbus, GA-AL Columbus, OH Dayton, OH Detroit, MI Elkhart, IN Evansville, IN-KY Floyd county, GA 19) 20) 21) 22) 23) 24) 25) 26) 27) 28) 29) 30) 31) 32) 33) Greensboro, NC Harrisburg, PA Hickory, NC Huntington-Ashland Indianapolis, IN Johnstown, PA Knoxville, TN Lancaster, PA Lexington, KY Lincoln County, MT Louisville, KY-IN Macon, GA Marion County, WV New York, NY-NJ-CT-PA Parkersburg, WV-OH 34) 35) 36) 37) 38) 39) 40) 41) 42) 43) 44) 45) 46) 47) Philadelphia, PA-NJ-DE-MD Pittsburgh, PA Pittsburgh/ Liberty-Clairton, PA Reading, PA San Diego, CA San Joaquin Valley, CA South Coast, CA St. Louis, MO-IL Steubenville, OH-WV Toledo, OH Washington, DC-MD-VA-WV Wheeling, WV-OH York, PA Youngstown, OH Unclassifiable DeKalb county, AL Etowah county, AL Muncie, IN Greenville, SC McMinn county, TN 13 Note: Population totals by region do not reflect partial county totals. (Overall total is actually 95.3 million). 14 PM2.5 Designations Southeastern Summary • 14 nonattainment areas in 5 SE States • 9.4 million population • Comprised of 52 counties (44 full, 8 partial counties) • 4 unclassifiable areas with 6 counties - Greenville, SC (3 counties); DeKalb County, AL; Etowah County, AL; McMinn County, TN - Will review 2002-2004 data for these areas 15 8-hour Ozone and PM 2.5 Nonattainment Counties As of January 5, 2005 Designated Nonattainment PM 2.5 Only Both 8-hour Ozone and PM 2.5 8-hour Ozone Only *Counties are shown as whole counties; however, in some cases, only part of the county was designated as nonattainment. *Some States may seek to change their PM 2.5 areas based on 2002-2004 data. Any requests for changes must be submitted by February 22, 2005. PM 2.5 nonattainment area designations will be effective by April 5, 2005. PM 2.5 Unclassifiable Areas DeKalb County, AL Gadsden, AL: Etowah County Muncie, IN: Delaware County Greenville-Spartanburg, SC: Anderson County Greenville County Spartanburg County McMinn County, TN: McMinn County 16 Final PM2.5 Nonattainment Areas Montana NA partial county NA whole county Unclassifiable Eastern U.S. California 17 Final PM2.5 Designations Attainment Counties Counties with Monitored Violations Counties with Nonattaining monitors Population* Nonattainment Counties Full Nonattainment Counties Population* Full Nonattainment Counties Population* Partial Nonattainment Counties Partial Nonattainment Counties Population* Unclassifiable All Counties in Attainment State Recommendations EPA Response EPA Final Designations NA NA 2909 NA NA 192 Population* All Counties in Nonattainment Areas Unclassifiable Nonattainment Counties Population* NA NA 82 NA NA 58 142 244 225 78 99 95 133 233 191 65 85 82 8 10 34 14 14 14 NA NA 7 NA NA 1 * Millions of people 18 PM2.5 Nonattainment Areas Emissions by Region 19 PM2.5 Designations: 2004 Data and Next Steps • By 2/22/05, states must have submitted to EPA a request to change the designation of an area based on 2002-2004 data prior to the effective date of the designations (4/5/05). • The requests needed to include complete, qualityassured, certified air quality data for 2002-2004. • For an area to be changed to attainment, the State must show that the overall metro area does not have any violating monitors. 20 PM2.5 Designations: 2004 Data and Next Steps (cont) • EPA will review this information and will issue a notice by 4/5/05 which changes the designation for applicable areas, as appropriate. • If inclusion of 2004 data results in nonattainment in an area that was initially designated attainment, EPA will “evaluate the reasons for the violation and determine the appropriate course of action, which could include redesignation of the area to nonattainment.” 21 PM2.5 Implementation: Overall Approach • Proposal in spring 2005, final in spring 2006 • Rule is based on “basic” nonattainment requirements in Clean Air Act (section 172, subpart 1) • Some areas may attain primarily due to federal measures • For others to attain, need to simultaneously reduce emissions under Federal programs (e.g. mobile source measures and regional reductions of SO2 and NOx) and State/local measures 22 Regional vs. Local Controls • Virtually every area has a regional and a local component to its nonattainment problem • Over next several years, air quality will improve due to reductions from programs on the books (e.g. mobile source rules, NOx SIP call, State programs, etc.) • Federal programs are under development (e.g. CAIR) to address regionally transported SO2 and NOx • States should take these reductions into account in developing 2008 plans to attain “as expeditiously as practicable” – Also adopt reasonable local measures to accelerate public health protection – Analysis of PM2.5 chemical composition monitoring data can help identify key sources contributing to PM2.5 nonattainment problems 23 PM2.5 Implementation Rule • NSR applies upon effective date of designations – PM2.5 rule includes changes to NSR program – OAQPS developing guidance memo to address interim period from effective date of designations to date of final rule – “Appendix S” will apply from date of final rule to State adoption of revised NSR SIPs – Key issues: precursors, significant emission rates, significant impact levels • Transportation conformity applies 1 year from effective date of designations – Supplemental rulemaking under development to address PM2.5 hot-spot analyses and PM2.5 precursors 24 PM2.5 Implementation Rule Issues • • • • Attainment dates Classifications PM2.5 precursors Reasonably available control technology (RACT) • Reasonably available control measures (RACM) • Reasonable further progress (RFP) 25 Attainment Dates • State attainment demonstrations and SIP revisions are due April 2008 – Attainment demonstrations need to provide the supporting analysis for State adoption of measures that will result in the area attaining the standard “as expeditiously as practicable” • Under CAA, attainment date is no later than five years from date of designation (e.g. Apr. 2010) – Extensions of 1-5 years are possible (see next slide) • Attainment determination would be based on most recent 3 calendar years (e.g. 2007-2009 for Apr. 2010 attainment date). 26 Attainment Date Extension • State must provide thorough analysis of feasible RACM and RACT in the nonattainment area – Based on this analysis, the State can propose an attainment date extension and EPA can grant such an extension, taking into consideration: • the severity of the nonattainment problem • the availability and feasibility of control measures – The extension can be up to five years beyond April 2010 27 Classifications Option 1: No classification system – Keeps it simple under subpart 1. Possible option 2: Moderate & serious classifications – Moderate areas would be those with approved attainment dates within five years. – Serious areas would be those with design values above a specific threshold, or those areas with attainment dates beyond five years 28 Coverage of PM2.5 Precursors • • • – – – Goal: consistent approach in transportation conformity, PM2.5 implementation rule, NSR Atmospheric chemistry leading to PM2.5 formation is complex Potential approach PM2.5 direct emissions (including organic carbon, elemental carbon, and crustal material) must be addressed Presumption: SO2 and NOx sources must be addressed in all areas VOC and ammonia would not be required to be addressed in all areas, but may be addressed if EPA or the State provides a demonstration supporting their inclusion for specific areas. 29 Reasonably Available Control Technology (RACT)  RACT is the lowest emission limit that a source is capable of meeting with available control technology, considering technological and economic feasibility. • Option 1. RACT analysis required for all stationary sources with the potential to emit (pte) direct PM2.5 or a precursor more than 100 tpy • Option 2. RACT applies to stationary sources only to the extent it is needed for expeditious attainment or to meet RFP. • Possible option 3 – Option 2 for areas with attainment dates within 5 years – Option 1 for areas with attainment dates > 5 years 30 RACT (cont.) • Previous RACT determinations for other programs – May be acceptable for purposes of PM2.5, provided the State submits a certification with appropriate supporting information that the previous RACT determination currently represents an appropriate level of control. • EPA may revise control techniques guidelines or alternative control technology documents for a few important categories with multipollutant effects 31 Reasonably Available Control Measures (RACM) • A RACM demonstration must show that the State has adopted all reasonable measures needed to meet RFP and to attain the standard as expeditiously as practicable. – The demonstration should also show that there are no additional measures available that would advance the attainment date or contribute to RFP. – In determining RACM for an area, the state must consider the cumulative impact of implementing the available measures and whether such measures taken together would advance the attainment date. 32 RACM (cont) • Preamble includes a list of specific measures that States should consider as part of the RACM analysis. – States would not be required to adopt these measures, but should assess whether implementing such measures is technically and economically feasible and whether it would advance the attainment date – States also must analyze additional measures raised in public comment process. 33 Example Control Measures • • Diesel retrofits (trucks, school buses, stationary engines) Diesel idling (trucks, trains, port equipment, etc.) Programs to reduce emissions from poorly maintained vehicles New or improved direct PM and precursor controls on stationary sources Year-round operation of seasonal stationary source NOx controls Increase use of alternative fuel, hybrid vehicles Buy-back programs for small engines (boats, vehicles, equipment) • • • • • • Year-round measures to reduce VMT (Commuter Choice, carpooling incentives, etc.) Open burning laws and better enforcement Programs to reduced emissions from residential wood combustion and back yard barrel burning Smoke management plans Improved monitoring techniques and more frequent monitoring on sources with control devices Reducing emissions of volatile aromatic compounds (surface coatings, gasoline, solvents, etc.) • • • • • ** We have provided grant funding to STAPPA to develop a PM2.5 “Menu of Options” document. Planned completion date is Spring 2005. 34 Reasonable Further Progress (RFP) • • • RFP: annual incremental reductions in emissions for purpose of ensuring timely attainment Baseline emission inventory year is 2002 Main option: RFP plan due with attainment demonstration in 2008 • • If attainment date is no later than 5 years from designations (e.g. Feb. 2010), RFP would be deemed to be met For areas with an attainment date extension, the State would need to establish emission reduction milestones for January 1, 2010 and January 1, 2013 (if necessary) 35 Modeling and Attainment Demonstrations • All nonattainment areas need to submit an attainment plan having adequate modeling according to PM2.5 modeling guidance • Recommends one-atmosphere modeling • Coordinate based on attainment years for ozone and PM2.5 to the extent possible – For example, if an area has a 2008 attainment date for ozone and 2009 for PM2.5, then modeling for 2008 could address both programs – Also coordinate with regional haze assessments since SIPs for PM and haze are due at the same time • Take comment on whether to require a mid-course review to determine if progress is off-track in 2010 or 2013. 36 Summary • Fine particles: significant health and environmental effects • Designations framework is in place – Continue effective communications with the public • Early local reductions provide health benefits, co-benefits for other programs • Coordination with EPA Regions on timeline for actions leading to SIP submittals • Continue technical work through RPOs to support haze and PM planning and consultation – Inventories, base case runs, control measures for stationary/mobile/area sources, strategy modeling 37 For Further Information Websites: http://www.epa.gov/ozonedesignations http://www.epa.gov/ttn/naaqs/ozone/index.html http://www.epa.gov/pmdesignations http://www.epa.gov/ttn/naaqs/pm/pm25 index.html http://www.epa.gov/cleanair2004 Contacts: Dick Schutt 404-562-9033 schutt.dick@epa.gov Steve Scofield 404-562-9034 scofield.steve@epa.gov 38