STAPPA/ALAPCO EPA’s New and Revised Ozone and Particulate Matter National Ambient Air Quality Standards July 25, 1997
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STAPPA/ALAPCO
EPA’s New and RevisedOzone and Particulate Matter
National Ambient AirQuality Standards
July 25, 1997
STAPPA/ALAPCO
This PresentationWill Address...
l Background on NationalAmbient Air QualityStandards
l NAAQS ReviewProcess
l Background on Ozonel Background on
Particulate Matterl Regional Haze
l EPA’s Decisions on theOzone and PMStandards
l Monitoring PM2.5
l Implementation of theNew Standards
l What’s Next?l Sources of Additional
Information
STAPPA/ALAPCO
Background on the NationalAmbient Air Quality
Standards
STAPPA/ALAPCO
What Are NAAQS?
l Title I of CAA directs EPA to establishNational Ambient Air Quality Standards(NAAQS) for commonly occurring airpollutants posing public health threats.
l NAAQS set national levels for acceptableconcentrations of specific pollutants inoutdoor air.
l These are known as “criteria pollutants.”
STAPPA/ALAPCO
The Existing NAAQS
l EPA has set NAAQS for 6 criteriapollutants:» ground-level ozone (smog)» particulate matter (PM)» lead» nitrogen dioxide» sulfur dioxide» carbon monoxide
STAPPA/ALAPCO
Primary vs. Secondary NAAQS
l For each of these 6 pollutants, EPA hasset:» health-based or primary standards to
protect public health with adequate marginof safety; and
» welfare-based or secondary standards toprotect environment (e.g., crops,vegetation, wildlife, buildings and visibility).
STAPPA/ALAPCO
NAAQS Review Process
STAPPA/ALAPCO
NAAQS Review Process
l CAA directs EPA to review eachNAAQS once every 5 years.
l 5-year reviews ensure standards reflectmost recent health informationavailable.
l EPA recently concluded reviews ofNAAQS for both ozone and PM.
STAPPA/ALAPCO
Steps inNAAQS Review Process
Step 1: EPA Develops Criteria DocumentStep 2: EPA Develops Staff PaperStep 3: CASAC Reviews CD and Staff
PaperStep 4: EPA Decides Whether or Not to
Revise StandardStep 5: EPA Issues Proposed Decision
for Public Review
STAPPA/ALAPCO
Step 1: EPA DevelopsCriteria Document
l Summarizes relevant science onsources, chemistry and effects ofcriteria pollutant.
l Separate CDs published for ozone andPM.
STAPPA/ALAPCO
Step 2: EPA DevelopsStaff Paper
l Summarizes CD and identifies:» factors EPA believes should be considered during
review of standard;» uncertainties in scientific data; and» ranges of alternative standards EPA believes
should be considered.
l Separate Staff Papers published forozone and PM.
STAPPA/ALAPCO
Step 3: CASAC Reviews CDand Staff Paper
l CDs and Staff Papers submitted toClean Air Scientific Advisory Committee(CASAC) -- a Congressionallymandated group of independentscientific and technical experts.
l CASAC conducts extensive review ofCD and Staff Paper, culminating in“closure letter” to EPA Administrator.
STAPPA/ALAPCO
Step 4: EPA Decides Whetheror Not to Revise Standard
l CAA requires EPA to protect public healthwith adequate margin of safety.
l Act prohibits consideration of issuessuch as feasibility of meeting standard,cost effectiveness and economics.
l Agency’s decision based on most recenthealth information and CASAC’srecommendations on adequacy ofstandard.
STAPPA/ALAPCO
Step 5: EPA Issues ProposedDecision for Public Review
l Proposed decision published in FederalRegister.
l Public comment period follows:» public hearings held; and» written and oral public comments accepted.
l EPA Administrator makes final decision.
STAPPA/ALAPCO
Background on Ozone
STAPPA/ALAPCO
What is Ozone?
l Ozone: “Good up high, bad nearby.”l Ground-level ozone results from chemical
reaction of nitrogen oxides and hydrocarbonsin presence of sunlight.
l At ground-level, ozone is principal componentof smog and one of 6 “criteria pollutants” forwhich EPA sets NAAQS.
l In stratosphere, ozone occurs naturally andscreens out harmful ultraviolet rays from sun.
STAPPA/ALAPCO
Health Effects of Ozone
l When inhaled at harmful levels, ozone can:» pose health problems for children,
asthmatics, the elderly and even healthyadults;
» cause acute respiratory problems;» aggravate asthma, emphysema and
bronchitis;» lead to hospital admissions and emergency
room visits; and» impair the body’s immune system defenses.
STAPPA/ALAPCO
Hospital Admissions Are Just theTip of the Iceberg
1Hospital
Admission
5+Emergency/Outpatient
Visits
20+ Doctor Visits
100+ Asthma AttacksCite: US Department of Health and Human Services (1994) National Hospital Ambulatory Medical Care Survey: 1992 Summary. The NY Electricity Externality Study (1995) Rowe et al.
STAPPA/ALAPCO
Environmental Effects ofOzone
l Reduces agricultural yields for manyeconomically important crops.
l Reduces visibility by 70% in many partsof the U.S.
l Causes soiling and damage tomaterials.
l Adversely affects forests, plant life andecosystems.
STAPPA/ALAPCO
Major Contributors to Ozone
l Sources of NOx and VOCs» Motor Vehicles» Power Plants» Factories» Consumer and Commercial Products» Fuel Combustion Processes
STAPPA/ALAPCO
NOx Emissions by SourceCategory -- 1995
Industrial Processes
4.0%
Transportation48.7%
Miscellaneous1.0%
Fuel Combustion
46.3%Source: EPA Trends Report, October 1996
STAPPA/ALAPCO
Industrial Processes
58.4%
Miscellaneous2.0%
Fuel Combustion3.1%
Transportation36.5%
VOC Emissions by SourceCategory -- 1995
Source: EPA Trends Report, October 1996
STAPPA/ALAPCO
Background on ParticulateMatter
STAPPA/ALAPCO
What is Particulate Matter?
l A complex mixture of solid and liquidparticles suspended in atmosphere.
l PM10 is coarse particulate matter 10microns or less in diameter.
l PM2.5 is fine particulate matter 2.5microns or less in diameter.
STAPPA/ALAPCO
Types of Particles
l Primary Particles -- Those emitteddirectly into the air.
l Secondary Particles -- Those formed inthe atmosphere by transformation ofgases (SOx, NOx and VOCs) into solidsor liquids.
STAPPA/ALAPCO
Major Effects of PM
l Acute respiratory symptoms, including severechest pain, gasping and aggravatedcoughing;
l Aggravated asthma;l Decreased lung function and chronic
bronchitis;l Premature death; andl Environmental effects such as visibility
impairment and materials damage.
STAPPA/ALAPCO
Populations Most at Risk
l Elderly
l Children
l Asthmatics
l Adults with preexisting heart or lungdisease
STAPPA/ALAPCO
Sources of PM
l PM10
» Street Sand» Road Dust» Grinding Operations» Agricultural
Operations» Volcanoes
l PM2.5
» Motor Vehicles» Power Plants» Woodburning» Industrial Processes
STAPPA/ALAPCO
PM10 Emissions by SourceCategory -- 1995
Fuel Combustion,Industrial Processesand Transportation
6.0%
Fires 1.7%
Wind Erosion5.1%
Agriculture & Forestry19.7%
Fugitive Dust67.5%
Source: EPA Trends Report, October 1996
STAPPA/ALAPCO
Some Sources of PM2.5
l Sulfate» Oil and Coal-Fired
Boilers» Small Combustion
Sources
l Nitrate» Highway Vehicles
» Off-Road Diesel MobileSources
» Fertilizer
l Soil» Fugitive Dust» Agricultural Operations
» Industrial Operations
l Combustion Related» Diesels
» Aircraft and Railway» Fuel Combustion
» Open Burning
» Residential Burning
» Structural Fires» Organic Gases
STAPPA/ALAPCO
Origin of PM2.5 in Typical EasternCity -- Washington, DC
Nitrate13%
Sulfate47%
Soil (Fugitive Dust)5%
Combustion Related35%
Source: EPA (June 1997) -- based on analysis of actual ambient air samples taken during 1992-1995 in Washington, DC.
STAPPA/ALAPCO
Origin of PM2.5 in Arid Western City Surrounded by Desert and
Agriculture -- Phoenix, AZ
CombustionRelated
57%
Sulfate14%
Nitrate13%
Soil16%
Source: EPA (June 1997) -- based on analysis of actual ambient airsamples taken during 1995-1996 in Phoenix, AZ.
STAPPA/ALAPCO
Origin of PM2.5 in Western Agricultural/Industrial Area -- San Joaquin Valley
Combustion Related36%
Sulfate11%
Nitrate34%
Soil7%
Other12%
Source: EPA (June 1997) -- based on analysis of actual ambient airsamples taken during 1988-1989 in the San Joaquin Valley of CA.
STAPPA/ALAPCO
Regional Haze
STAPPA/ALAPCO
What is Regional Haze?
l Regional haze occurs when visibility is impaired over large area.
» According to EPA, haze currently reduces natural visibilityfrom 90 miles to between 14 and 24 miles in eastern U.S.and from 140 miles to between 33 and 90 miles in westernU.S.
» Visibility impairment tends to be exacerbated in the easternU.S. due to higher average humidity levels and higher levelsof PM from manmade and natural sources.
l Components of haze include suspended smoke, dust, moisture,vapor and other fine particles.
l Regional haze and visibility impairment may occur hundreds oreven thousands of miles away from sources of particles.
STAPPA/ALAPCO
Regulating Regional Haze
l EPA established regional haze programunder CAA to address visibility impairment innational parks and wilderness areas.
l CAA sets as national goal “the prevention ofany future, and the remedying of any existingimpairment of visibility in mandatory Class IFederal areas which impairment results fromman-made air pollution.”
STAPPA/ALAPCO
EPA’s New Regional HazeProposal
l EPA Administrator signed proposal for newregional haze program on 7/18/97.
l Proposal revises existing visibility programestablished in 1980; addresses visibility in theform of regional haze.
l Seeks to protect 156 “Class I” areas, includingcertain national parks, wilderness areas, nationalmemorial parks and international parks.
STAPPA/ALAPCO
Purposes of Regional HazeProposal
l Would serve as important component of overallapproach to protecting public welfare from effectsof visibility impairment associated with PM.
l Would result in development of comprehensivevisibility protection program under CAA.
l Would respond to recommendations made to EPAby Grand Canyon Visibility TransportCommission, based on 4 years of technicalassessment and discussion.
STAPPA/ALAPCO
Key Features of RegionalHaze Proposal
l Given evidence that fine particles can betransported hundreds of miles, program wouldapply to all states, including those without Class Iareas.
l Would impose “presumptive reasonable progresstargets” for improving visibility in Class I areas;states may propose alternate targets.
l Would require states to revise plans for visibilitywithin 12 months of issuance of final rule.
STAPPA/ALAPCO
EPA’s Decisions on theOzone and PM Standards
STAPPA/ALAPCO
EPA’s November 1996Proposals
l Proposed Revised Ozone Standardl Proposed Revised PM10 Standardl Proposed New PM2.5 Standardl Proposed PM2.5 Monitoring Strategyl Proposed Interim Implementation Policy
STAPPA/ALAPCO
Public Review of Proposals
l Proposals announced by EPA 11/27/96and published in Federal Register12/13/96.
l Four public hearings held in early 1997.l Public comments accepted until 3/12/97.l EPA received 57,000 comments at public
hearing, through letters and via e-mail andtelephone messages.
STAPPA/ALAPCO
Final EPA Action
l Final standards for ozone and PMannounced by EPA on 6/25/97.
l Final standards and PM monitoring rulesigned by EPA Administrator Browner on7/16/97 and published in Federal Registeron 7/18/97.
l All three actions take effect 9/16/97, unlessCongress acts.
STAPPA/ALAPCO
Ozone
STAPPA/ALAPCO
Existing One-Hour OzoneStandard
l 1-hour standard of 0.12 ppm, with nomore than 3 exceedances allowed over3-year period.
l Established in 1979.l Last review completed in 1989; existing
standard reaffirmed in 1993.
STAPPA/ALAPCO
EPA’s Ozone Proposal (11/96)
l Level of Standard -- Decreased from0.12 ppm to 0.08 ppm.
l Averaging Time -- Increased from 1hour to 8 hours to protect against longerexposures.
l Form of Standard -- Changed fromexceedance based to concentrationbased (3-year average of 3rd highestdaily concentration at a monitoring site).
STAPPA/ALAPCO
EPA’s Final OzoneStandard (7/97)
EXISTING PROPOSED FINAL
0.12 ppm 0.08 ppm 0.08 ppm
1-hour std. 8-hour std. 8-hour std.
Concentration-Based Form:3-year avg.of 3rd highestdaily concent.at a site
Concentration-Based Form:3-year avg.of 4th highestdaily concent.at a site
Exceedance-Based Form:No more than1 exceed. peryear, averagedover 3 years
STAPPA/ALAPCO
Determining Compliance:An Example
Year 1st High DailyConcent. (ppm)
2nd High DailyConcent. (ppm)
3rd High DailyConcent. (ppm)
199719981999
0.1050.1040.103
4th High DailyConcent. (ppm)
0.1030.1030.101
0.1030.0920.101
0.1020.0910.097
Avg. 0.097*
Area is n.a. because 3-yr. avg. of 4th highest daily 8-hr.concentration exceeds 0.08 ppm.*
STAPPA/ALAPCO
Health Benefits of Final Ozone Standard
l According to EPA, the new standard:» better reflects real-world effects of ozone
on human health;» extends health protection to 113 million
people -- 35 million more than areprotected by existing standard; and
» will result in 1 million fewer incidencesannually of decreased lung function inchildren.
STAPPA/ALAPCO
PM10
STAPPA/ALAPCO
Existing PM10 Standards
l Existing indicator for PM is PM10, whichaddresses coarse particles.
l Current PM10 standards set in 1987.l Annual Standard: 50 ug/m3, based on 3-
year average of annual arithmetic meanconcentrations.
l Daily Standard: 150 ug/m3, based on 1expected exceedance per year,averaged over 3 years.
STAPPA/ALAPCO
EPA’s PM10 Proposal (11/96)
l Annual Standard: Retain currentstandard, both numeric level and form.
l Daily Standard: Retain current numericlevel, but revise form from exceedancebased -- 1 per year averaged over 3years -- to concentration based -- 3-year average of 98th percentile ofmonitored concentrations.
STAPPA/ALAPCO
EPA’s Final PM10Standards (7/97)
EXISTING PROPOSED FINAL
Annual:- 50 ug/m3
- 3-yr avg. ofannual arith.mean concent.Daily:- 150 ug/m3
- 1 exceed/year,avgd over 3 yrs
Annual:- 50 ug/m3
- 3-yr avg. of annual arith.mean concent.Daily:- 150 ug/m3
- 3-yr avg of 98thpercentile ofmonitored concent.
Annual:- 50 ug/m3
- 3-yr avg. ofannual arith.mean concent.Daily:- 150 ug/m3
- 3-yr avg of 99thpercentile ofmonitored concent.
STAPPA/ALAPCO
PM2.5
STAPPA/ALAPCO
EPA’s PM2.5 Proposal (11/96)
l Annual Standard:15 ug/m3, based on 3-year average of annual arithmetic meanconcentrations.
l Daily Standard: 50 ug/m3, based on 3-year average of 98th percentile ofmonitored concentrations.
STAPPA/ALAPCO
EPA’s Final PM2.5Standards (7/97)
PROPOSED FINAL
Annual:- 15 ug/m3
- 3-yr avg of annualarith mean concent.
Daily:- 50 ug/m3
- 3-yr avg of 98thpercentile of monitoredconcent.
Annual:- 15 ug/m3
- 3-yr avg of annualarith mean concent.
Daily:- 65 ug/m3
- 3-yr avg of 98thpercentile of monitoredconcent.
STAPPA/ALAPCO
Monitoring PM2.5
STAPPA/ALAPCO
Deployment of PM2.5Monitoring Network
l New comprehensive, nationwide air qualitymonitoring network needed for PM2.5.
l Network to be deployed between 1998 and2000.
l EPA to seek Congressional appropriation forfull funding (>$100 million) of 1,500-monitorPM2.5 network.
l State and local agencies required to collect 3full years of data by no later than 2003.
STAPPA/ALAPCO
EPA’s Final PM2.5Monitoring Requirements
l Final PM monitoring rule establishes new method(“Federal Reference Method”) for monitoringPM2.5, as well as procedures for identifyingequivalent methods.
l Compliance with annual standard to be based oncommunity-oriented or “core” monitors,representative of average community-wideexposure; spatial averaging may be used.
l Compliance with daily standard to be based onsingle population-oriented monitoring site withhighest measured values.
STAPPA/ALAPCO
Where Will Monitors BePlaced?
l In 1998, all metro areas with population of 500K ormore required to have at least 1 core monitor; eachstate required to have at least 2 additionalmonitors.
l Monitoring areas will be selected by state based onlikelihood of high PM2.5 concentrations and size ofaffected population.
l PM2.5 monitors to be collocated in some ozonenonattainment areas.
l Special Purpose Monitors will also be sited; somemonitors will conduct chemical speciation.
STAPPA/ALAPCO
Implementation of the NewStandards
STAPPA/ALAPCO
Presidential Memo to EPAon Implementation
l President Clinton published memo to EPAAdministrator in Federal Register on 7/18/97.
l To serve as “road map for areas to attainstandards and protect public health withoutsacrificing economic growth.”
l Calls for standards to be implemented in mostflexible, reasonable, and least burdensomemanner; calls upon federal government to workwith state and local governments and otherinterested parties to this end.
STAPPA/ALAPCO
Provisions of Memol Maximize common sense, flexibility and cost
effectiveness.l Maintain current progress and respect
agreements already made by states,communities and businesses to clean up air.
l Reward early action to reduce air pollution.l Address transported pollution; minimize burden
on areas where problems are regional, not local.l Encourage control strategies that keep costs
under $10,000 per ton.
STAPPA/ALAPCO
New Review of PM2.5Standards
l Memo requires EPA to begin new review ofPM2.5 standards immediately (proposed reviewschedule due October 1997).
l To be completed, including CASAC review, byJuly 2002 -- prior to designations under PM2.5standards and imposition of control measures.
l EPA to continue to sponsor research on effectsof fine particles on human health.
STAPPA/ALAPCO
OzoneImplementation Issues
STAPPA/ALAPCO
Current EPA Thinking onOzone Implementation
Three Categories of Areas:1 - Current ozone nonattainment areas.2 - Current attainment areas that will violatenew ozone standard, but be able to attainthrough implementation of regional transportstrategy.3 - Current attainment areas that will violatenew ozone standard, but for which regionaltransport strategy not applicable or notsufficient.
STAPPA/ALAPCO
Current OzoneNonattainment Areas
l Designate under new standard in 2000, based ondata from 1997-1999; areas that attain 1-hr std.by 2000 may qualify for “transitional” status.
l Retain existing ozone nonattainmentdesignations/classifications until existing standardmet; CAA provisions for “bump ups” retained.
l Continue attainment efforts; SIP for new standarddue in 2003 (need not include new obligationsunder new standard until existing standard met).
l Attainment required by 12 years followingdesignation (2012).
STAPPA/ALAPCO
New Nonattainment AreasHelped by Regional Strategy
l Areas able to attain new standard through regionaltransport strategy submit plan addressingtransport to EPA in 2000.
l Also in 2000, EPA designates as “transitional”those areas needing few or no reductions inaddition to regional strategy (modified NSR,offsets and conformity to apply).
l Reductions from transport strategy to be achievedby 2004; effectiveness assessed in 2007.
l Areas have up to 12 years following designation(2012) to attain new standard.
STAPPA/ALAPCO
Regional Transport Strategyl EPA expects most new ozone nonattainment
areas will attain with regional strategy alone.l EPA to pursue regional utility NOx strategy in
eastern U.S., as recommended by OzoneTransport Assessment Group (OTAG).
l OTAG = Recently completed 2-yearstakeholder process to develop recom-mendations to address ozone transport in 37-state region of eastern U.S.
STAPPA/ALAPCO
Other New NonattainmentAreas
l Areas to be designated in 2000, based ondata from 1997-1999.
l SIPs to be developed and approved 3 yearsfollowing designation.
l Areas designated nonattainment must attainby 12 years following designation (2012).
l Areas not subject to regional strategy may beclassified as “transitional” if they develop andsubmit, and EPA approves, SIP with sufficientmeasures prior to 2000.
STAPPA/ALAPCO
Ozone ImplementationSchedule
“Transitional” Areas Other N.A. Areas2000: States submitplans addressing trans-port; EPA designates“transitional” areas.2004: Regional reduc-tions achieved.2007: Effectiveness ofreg. reducts. assessed.2012: Areas to attainw/in 12 yrs. from desig.
2000: EPA designatesnonattainment areas.2003: States submitplans for attaining std.(for existing n.a. areas,ongoing efforts enough).2004: Implementation ofplans begins.2012: Areas to attainw/in 12 yrs. from desig.
STAPPA/ALAPCO
PMImplementation Issues
STAPPA/ALAPCO
PM2.5 ImplementationSchedule
1997-2002: EPA conductsnew review of PM2.5health effects.
1998-2000: PM2.5monitoring networkdeployed.
1998-2003: Monitoringdata collected.
2002-2005:PM2.5 n.a.areas designated basedon 3 yrs of data.
2005-2008: Statessubmit and begin imple-menting SIPs.
2012-2017: Nonattain-ment areas to reachattainment (12 yearsfollowing designation).
STAPPA/ALAPCO
Regional Strategies for PM2.5
l EPA estimates nearly 1/3 of areas projected toviolate PM2.5 standard (primarily in east) couldcomply as result of regional SO2 reductions nowrequired by CAA acid rain program.
l Where problems are regional and areas arecarrying out regional reduction programs, no newlocal requirements to be imposed.
l Other regional strategies for reducing PM2.5 to beanalyzed; EPA to encourage market-basedregional approaches where further regionalreductions needed to attain.
STAPPA/ALAPCO
What’s Next?
STAPPA/ALAPCO
Possibilities forCongressional Action
l Congress allowed 60 legislative days under SmallBusiness Regulatory Enforcement Fairness Act(SBREFA) to review final standards.» May hold hearings and/or take a vote.» If standards voted down, President may veto;
2/3 congressional vote necessary to overrideveto and repeal final standards.
l May also pursue legislative recourse, such asappropriations rider or targeted legislation; notsubject to 60-day time period.
STAPPA/ALAPCO
EPA Development ofImplementation Strategies
l Interim Implementation Policy -- toaddress period between promulgationand SIP approval -- proposed in 11/96.
l Final Interim Implementation Policyexpected in 9/97.
l More detailed implementation strategyto be proposed by end of 1997.
STAPPA/ALAPCO
Development ofImplementation Approaches
l EPA has convened stakeholder processunder Federal Advisory Committee Act todevelop recommendations related tointegrated implementation of new standardsand forthcoming new regional haze program.» FACA Subcommittee for Ozone, PM and
Regional Haze Implementation Programs.» Integrated implementation can lead to
more cost-effective and efficient controlstrategies.
STAPPA/ALAPCO
Sources of AdditionalInformation
STAPPA/ALAPCO
Internet Web Sites
l STAPPA/ALAPCO’s web site --http://www.4cleanair.org
l EPA’s Air Links web site --http://ttnwww.rtpnc.epa.gov/naaqsfin/
STAPPA/ALAPCO
STAPPA/ALAPCOPublications
l Controlling Particulate Matter Under theClean Air Act: A Menu of Options -- July1996.
l Controlling Nitrogen Oxides Under theClean Air Act: A Menu of Options -- July1994.
l Controlling Volatile Organic CompoundsUnder the Clean Air Act: A Menu ofOptions -- September 1993.
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