FEATHERRIVERAIRQUALITYMANAGEMENTDISTRICTServingSutterandYubaCountiesProposedModificationtoRegulationII,Rule2.0,OpenBurningStaffReportOctober6,2008ProposedRuleAdoptionDate:-October6,2008-STAFFREPORTRE:ProposedModificationstoRegulation2-0penBurningScheduleofMeetings•DateofPublicWorkshop:3:00p.m.onAugust21,2008,SutterCountyAgriculturalCommissioner'sOfficeConferenceRoom,142GardenHighway,YubaCity,CA95991•ScheduledDateofPublicHearing:4:00p.m.onOctober6,2008,YubaCountyGovernmentCenter,9188thStreet,Marysville,CA,95901OpenBurningRegulationDateofRelease:August4,2008ScheduledDateofAdoption:4:00p.m.October6,2008FeatherRiverAirQualityManagementDistrict,938141hStreet,Marysville,CA,95901ContentsPageExecutiveSummary.......................................................................................................21.Introduction...............................................................................................................32.Background..............................................................................................................3·3.CostandSocioeconomicImpacts.............................................................................34.EnvironmentalImpacts.............................................................................................45.PublicComment........................................................................................................46.RequiredFindings.....................................................................................................6AttachmentAAttachmentBTableofRegulationIIAmendmentsDifferencesontheDistrict'sExistingRules&Regulations..ProposedLineout/StrikeoutofRegulationII,Rule2.02STAFFREPORTExecutiveSummaryAirPollutionControlDistrict(District)programreviewsareconductedaspartoftheAirResourcesBoard(ARB)oversightrolewithrespecttoDistrictsinCaliforniaandinaccordancewithsection41500oftheHealthandSafetyCode(HSC).ThepurposeofDistrictprogramreviewsistoprovideconstructivefeedbacktotheDistrictstoassistDistrictsincarryingouttheirairqualityprograms.Findingsandrecommendationsspecifictoeachprogramareareviewedareincludedinthereport.FromMaythroughAugust2005,ARBstaffconductedareviewoftheFeatherRiverAirQualityManagementDistrict'sairqualityprogram.InadditiontoreviewingallDistrictprograms,thecomprehensivereviewdonebyARBstaffincludedtheDistrict complianceprogram'sAgriculturalBumProgram.ARBstaffpresentedanoutlineofproposedreviewactivitiesthatcoveredthescope,method,andcontentoftheprogramevaluation,generallogistics,andtimelinesrelatedtothiseffort.Followingthe entranceconference,staffinitiatedareviewoftheprogramareasidentifiedinMay2005,withthemajorfieldinspectionactivityfinishingbyAugust2005.Staffexaminedfilesandrecords,interviewedDistrictstaffandmanagement,andconductedinspectionsofpermittedsources.The Districthasacomprehensivesetofrulesforagriculturalburningandforotheropen(nonagricultural)burning.TherulesareconsistentwiththeSmokeManagementGuidelinesinTitle17,andwiththenon-agriculturalandagriculturalburningrulesinthe Health&SafetyCode(HSC),exceptforapermitexemptionthatisinconsistentwithsection41852oftheCaliforniaHealthandSafetycode.RegulationII-OpenBurning,sectionH.2(a),underExemptionstoPermitRequirements,exemptstheburnerofagriculturalpesticidesacksfromhavingapermittobum.TheHSCsection41852statesthat"nooneshallsetorpermitagriculturalburningunlesshehasavalidpermit..."Pesticidesacksqualifyasmaterialsthatmaybeburnedasagriculturalwaste,andarelistedasexamplesinsection80101(r)(2)(B)oftheSmokeManagementGuidelinesforAgriculturalandPrescribedBurninginTitle17oftheCaliforniaCodeofRegulations.Thedefinitionof"Openburninginagriculturaloperationsinthegrowingofcropsorraisingoffowloranimals"includes"Theburningofmaterialsnotproducedwhollyfromsuchoperations,butwhichareintimatelyrelated...andwhichareusedinthefield."ARBrecommendedtheDistrictamenditsrulethatnoonemaybumpesticidesackswithoutobtainingavalidagriculturalbumpermit.ThefollowingStaffReportwasdevelopedtoprovideinformationregardingthespecificchangesandadditionstotheOpenBurningRegulationandtoprovidethejustificationforthenecessarymodifications.1.0INTRODUCTIONTheDistrictisproposingtomodifyRegulationIItoaddprovisionsthatmaketheregulationcompliantwiththeCaliforniaHealthandSafetyCodeSection.Inaddition,theDistrictisproposingtoeliminatethepermitexemptionforresidentialincineratorsforburningpaperofleaves.Toaccomplishthis,itwasnecessaryfortheDistricttomodifysomeelementsintheopenburningprograms.ThepurposeoftheregulationistoensureopenburningintheDistrictisconductedinamannerthatminimizesemissionsandsmokeandismanagedconsistentwithstateandfederallaw.ThisregulationisapplicabletoanypersonorlandmanagerconductingorallowinganyopenburningwithinYubaandSuttercountiesincludingagriculturalburning,non-agriculturalburning,andresidentialburning.2.0BACKGROUND:RegulationII,OpenBurningsetsconditions,requirements,andprohibitionsforallopenburningprogramsregulatedbytheDistrictconductedwithinYubaandSutterCounties,includingagriculturalburning,non-agriculturalburning,andresidentialburning.ThemodificationstheDistrictisproposingaffectallorpartofeachopenburningprogram.3.0COSTANDSOCIOECONOMICIMPACTS:TheDistrictdoesnotexpectcostimpactsforthemodificationstotheagriculturalprograms.Costimpactsareexpectedduetopermittingfeeforburningpesticidesacksoffortytwodollars($42.00).BelowisasummaryofthestudyasitaffectsYubaandSuttercountiesanddiscussestheimpactsthattheRulesmodifiedmayhaveonconsumersaswellascoststobusinessesandlocal,state,andfederalagencies.ConsumerCostsTheDistrictdoesnotexpectconsumercostimpactsunlesstheaffectedusers(cropdusteroperators/pesticideapplicators)passoncosts.Employment,BusinessCreation,EliminationorExpansion3TheproposedrulemodificationsarenotexpectedtohaveanoticeableimpactonthestatusofCaliforniabusinesses.Theprimary businessesaffectedwouldbewasteserviceprovidersaswellasoperatorsofprivaterecyclingcentersandwastedisposalfacilitiesforplasticagriculturalchemicalcontainers.TheregulationmayactuallycreatesomebusinessopportunitiesandemploymentforCaliforniawasteserviceprovidersinareaswhereeitheradditionalpestcontroladvisorsandoperatorsoptintoservicewhereserviceforcontainerdisposal.Neworexpandedopportunitiescouldalsobecreatedforrecyclingfacilities.CoststotheDistrictTheDistrictalreadyhasrulesandregulationsinplacethatnecessitateenforcementforcurrentlyprohibitedmaterials,theenforcementeffortsrequiredfortheproposedrulemodificationwouldbuildupontheseexistingefforts.TheDistrictalsoneedstocarryoutapubliceducationandoutreachcampaigntoenhancecompliancewiththeproposedrulemodificationandtoalertthepestcontroladvisersandoperatorstoavailableoptionsforwastedisposal.4.0ENVIRONMENTALIMPACTS:TheintentoftheproposedRulemodificationstoimproveairqualityandprotectthepublichealthbyreducingthepublic'sexposuretopotentiallyharmfulemissionsofdioxins,othertoxicaircontaminants,andparticulatematterproducedduringtheburningofplasticchemicalcontainers.5.0PUBLICCOMMENT4ApublicworkshopwasheldonAugust21,2008,toprovideaforumforpubliccomment.Allpestcontroladvisersandoperatorswerenotifiedviamail,andapublicnoticeoftheworkshopandhearingwaspublishedintheAppealDemocratonJuly21,2008.·Nocommentswerereceivedduringtheworkshop.ThepublichearingforadoptionwillbeheldonOctober6,2008toconsidermodifyingRule2.0.6.0REQUIREDFINDINGSFindingsrequiredbyDivision26oftheCaliforniaHealthandSafetyCoderequireslocaldistrictstocomplywitharuleadoptionprotocolassetforthinSection40727oftheCode.ThissectionhasbeenrevisedthroughlegislativemandatetocontainsixfindingsthattheDistrictgoverningboardmustmakebeforeadopting,amending,orrepealingaruleorregulation.ThesefindingsandtheirdefinitionsareincludedinTable1.Inaddition,Section40727.2oftheCoderequirespreparationofawrittenanalysisbytheDistricttoidentifyallexistingfederalairpollutioncontrolrequirements,anyoftheDistrict'sexistingorproposedrulesandregulationsthatapplytothesameequipmentorsourcetype,andallairpollutioncontrolrequirementsandguidelinesinformedtotheDistrictinresponsetotheannualpublishedlistofproposedregulatoryactionbytheDistrict.Therearenoknownexistingfederalcontrolrequirementsforopenburning.ControlrequirementstypicallyarecontainedintheCodeofFederalRegulationsundervariousprogramslikeNationalEmissionsStandardsforHazardousAirPollutants(NESHAPs),NewSourcePerformanceStandards(NSPS),NewSourceReviewstandards(NSR),PreventionofSignificantDeteorization(PSD),andtheStateImplementationplan(SIP).DistrictrulesandregulationsthatapplytothesamesourcetypeareRegulation!-GeneralProvisions,RegulationII(Yuba&Sutter)-OpenBurning,RegulationIII-StationarySources,RegulationIV-5Permitting,RegulationVII-Fees,RegulationX-NewSourceReview,andRegulationXI-AirToxics.AttachmentBprovidesasummaryoftheaffectedrules,thedifferencesbetweenthoserulesandtheproposedamendments,andtheDistrict'srecommendedchangestotheaffectedrules.TheDistrictrecommendsthechangesbecompletedassoonaspossibletoassuretheregulationsoftheDistrictareconsistent.TheDistrictreceivednonotificationinformingusofadditionalairpollutionrequirementsandguidelinesasaresponsetoourpublishedlistofproposedregulatoryactions.6 Table

1 Findings STATE

DEFINITION

DISTRICT RECOMMENDED MANDATED

FINDING FINDING Authority

A

..

of law

or

of

a state

or California

Health

and Safety prOVISiOn federal regulation

permits

or requires

Code, Sections

39666,

40000, the regional

agency

to adopt, amend,

or 40001,

40702,

and 41865

are repeal

the regulation.

provisions

of law

that provide

air districts

with

the authority

to adopt

these proposed

rules

and regulations. Necessity

The District

has demonstrated

that

a

It

IS necessary

for districts

to need

for

the rule,

or

for rule amendment

adopt

these amendments

to or repeal.

comply

with

state

law

and

to ensure

consistency

with neighboring

air districts. Clarity

The

rule

is written

or displayed

so that

There

is

no indication,

at this its meaning

can

be easily understood

by

time,

that

the proposed

rules

are the persons

directly

affected

by

it

written

in such

a manner

that persons

affected

by

the

rule

can not easily understand

it. Consistency

This

rule

is

in harmony

with,

and

not

in These

rules

are consistent

with conflict

with

or contradictory

to, applicable

statutory requirements. existing

statutes,

court decisions,

or State

or federal regulations. Non-

The

rule

does

not impose

the same

Any duQlication

with existmg Duplication

requirements

as

an existing

State

or

state

or federal regulations

IS federal regulation,

unless

the District

necessary

or QroQer

to execute

the finds

that

the requirements

are QOWers

and duties

of the Feather necessary

and proper

to execute

the

River

Air Qualitv Management powers

and duties

granted

to,

and District. imposed

upon,

the District Reference

Any statute,

court decision,

or other

The proposed

rule

has

been provision

of

law

that

the District

developed

to

meet

the implements,

interprets,

or makes requirements

of Section

39666

of specific

by adopting,

amending,

or

the California

Health

and Safety repealing

a regulation.

Code.7AttachmentATableofRegulationIIAmendmentsDifferencesontheDistrict'sExistingRules&RegulationsTableofRegulationIIAmendmentsEffectsontheDistrict'sExistingRules&RegulationsRegulationRuleDifference(s)RecommendedChange1.1DefinitionsDeletecontraryandoutdateddefinitionsIIEntireRegulationRefertosummaryinSection2.0ofAdoptproposedregulationthisStaffReportIll3.1(a)updaterulenumbersreferencesOpenburningasauthorizedinRegulationII3.1(b),(c),&(d)3.2IV4.3(d)(6)VII7.8X10.110.210.3(B)(28)XI11.511.7(b)(2)11.7(c)(1)&(2)updaterulenumbersreferencescombustioncontaminantsfromincineratorsATC/PTOExemptionsBurningFeesOpenbiomassBurningERG'sfromopenbiomassburningTitleVIncineratorsMedicalWasteIncineratorsFireplace&WoodStoveProhibitedmaterialsPenaltyStructureDeletespecificopenburningruleexemptionsAmendlastsentencetoread"Inmeasuringthecombustioncontaminantsfromstationarysourceincineratorsusedtodisposeofpermittedmaterialsbyburning...."RemoveexemptionforresidentialincineratorsUpdatefeestocoveragricultural,non-agricultural,andresidentialburning.NochangeNochangeNochangeNochangeUpdatelistofprohibitedmaterialstoreferenceRegulationIIE.13UpdatetoreferenceonlytheHealth&SafetyCodesections,deletesetamounts.