ExceptionalEventsUpdatesUSEPA‐OAR‐OAQPSWESTARSpringMeetingApril2015OverviewofPresentation•RelevantBackground•OutreachtoassesslessonslearnedandbestpracticesforExceptionalEventsdemonstrationstodate•UpdateonExceptionalEventsRuleRevisionsandGuidance(includingcommunicationplanandschedule)•ScheduleandNextSteps•Arizona’sEEProcessImprovementAnalysis(ADEQ)•DiscussionofkeyquestionsfromEPA2RelevantBackground•StatescontinuetoexpressconcernsaboutExceptionalEventsDemonstrations.Concernsinclude:•ResourcesneededforExceptionalEventsdemonstrations•LengthyandinconsistentreviewsofExceptionalEventsdemonstrations•Lackofand/orinconsistentcommunicationconcerningtreatmentandprocessingofExceptionalEventsdemonstrations•OngoingdiscussionswithEPARegionsandstatestodeterminewhatworkswellandwhatcouldworkbettertoaddressconcernsforExceptionalEventsdemonstrations•ArethereopportunitiestofurtherstandardizecertainaspectsofExceptionalEventsdemonstrations?•Howcanearlyandfrequentcoordinationandcommunication,templatesandotherprocessaidsbeusedtoimproveprocessefficiency?•ArethereotherprocessimprovementsortechnicaltoolsEPAandstatesshouldconsider?•TechnicaltoolsandprocessaidsidentifiedasbestpracticesandlessonslearnedwillbeusedtocomplementtheExceptionalEventsRulerevisionsandWildfireOzoneguidance•SeeAppendixforadditionalbackgroundinformation3OutreachtoAssessLessonsLearnedandBestPracticesforEEDemonstrations•OutreachGoalsandMethodology:•Goal:TobetterunderstandExceptionalEvents‐relatedconcernsandbestpracticesfromairagencies,forEPAtolearnandprovidestandardizedandmoreefficientwaysforstatestoaddressExceptionalEventsdemonstrations•Qualitativereviewbasedonstandardsetofquestions(seeAppendixforlistofquestions)•Talkedingeneralwithstatesandregionaloffices•Resultsofoutreachrevealedbestpracticesalreadybeingused,areasforimprovementandrequeststofurtherclarifypolicyandimprovetools4OpportunitiesinThreeKeyAreas•Bestpracticesforcommunication/collaborationbetweenEPAandairagencies•SystematiccommunicationsprocessbetweenairagenciesandthereviewingEPARegionalofficeforexceptionaleventsbefore,duringandafterexceptionaleventspackagedevelopment,submittalandreview•Recommendationstoclarifyandsimplifydemonstrations•Recommendationsfortoolsandconsistencychecks•ToolsandresourcesthatwillenhancecollaborationamongregionsandstatesandresultinconsistencyininterpretingandapplyingExceptionalEventsRuleelementsandlevelofeffort5BestPracticesforCommunication/CollaborationBetweenEPAandAirAgencies6•Communicateoften•Communicatebefore,duringandafterdevelopmentandsubmissionsofexceptionaleventpackages•DuringInitialmeetings•SpendtimepreparingfortheinitialmeetingsbyprescreeningflaggedeventstoensuretheyareofregulatorysignificanceandarelikelytobecomeExceptionalEventssubmissions,usingsharedcriteriabetweenEPAandairagencies•Obtainclearunderstandingofregulatorysignificance,numberandtypeofsubmissionsfromairagencies&EPApriorityforaction•DiscussthecriticalpathaspectoftheExceptionalEventssubmissionbeforegeneratinglotsofmaps,dataandtables•ObtainclearunderstandingonEPAtimelinesforactionandwaystotrackasubmission•CommunicatethroughoutthedevelopmentofExceptionalEventspackages,sharingprevioussuccessfulproductsforsimilarevents,sharingtemplatesfordataandlanguage,andreviewofdrafts•CommunicateaftersubmissionandEPAactionstolearnEPA’sdecisioncriteriaforthatactionandaspectsoftheprojectthatworkedandthosethatcouldbeimprovedRecommendationstoClarifyandSimplifyDemonstrations•ThroughExceptionalEventsRuleRevisionsandGuidance:•Clarify“notreasonablycontrollableorpreventable”•Address“butfor”concerns•Flaggingofdata– durationofflags,descriptions,scheduleandeventsclosetoregulatorysubmissions•Clarifytheneedandutilityofhistoricalfluctuationsassessments•Provideboilerplatesfor“obvious”naturalexceptionalevents;providewaystoefficientlydemonstrateforrecurringnaturalevents•Administrativechanges– delegationofauthoritytoEPARegionalAirDirectortoactonpackages,clarifyuseofLetterofIntent,specifytimelinesforEPAreviewofsubmittedpackages•Ozone– provideguidance,standardandlevelofeffortonpackages,provisionsforflaggingvaluesbelowtheNAAQS,bettertoolsfor“butfor”and“clearcausalrelationship,”andregionaleffortforcatastrophiceventsoverlargescales7RecommendationsforToolsandConsistencyChecks•Toolsandresourcesthatenhancecollaboration:•Consistentinterpretationoftheruleandguidanceforthesetofeventsindiscussion•Consistentapproachtodustcontrolsinattainment/unclassifiableareas;•Consistentapproachto‘notreasonablycontrollableorpreventable’inattainmentanddesignatedplanningareas•ConsistentunderstandingofplanningarearequirementsandexistingstaterulesasitintersectswiththeExceptionalEventsRule•Develop,shareandadapttemplatesthatsimplifyorganizationofdocumenttosupportEPAdecisionandaction•Providedemonstrationoutlinesforwildfireozoneeventsincludingorderinwhichtoaddresselements,andtypeofinformationtosupporttheconclusion•Provideclarityonthetypesoftechnicaltoolsthatareapplicableforeachtypeofevent8CurrentThinkingforProposedExceptionalEventsRuleRevisions9CurrentThinkingonWildfireOzoneGuidance•WildfireOzoneGuidance:Tiered/streamlineddemonstrationapproachforlargeand/orclosefiresthataffecthighozoneconcentrations•Norequirementtoquantifyfireimpactonozoneconcentration•Template(s)fordemonstrations•Demonstrationswouldinclude3elementstoaddressclearcausal/butfor:1. Firecharacteristicsandrelationshiptotheaffectedmonitor•Fireemissionsfortheday(s)•Distancefromthecentroidofthefiretotheaffectedmonitor•Highozoneatthemonitor•Guidancewouldidentifywhatcombinationoffactors“passes”toshowsufficientcausalconnection2. Coincidentbacktrajectoriesbetweenfireandaffectedmonitor3. Atleastonetypeofadditionalevidencethatsmokefromthefirereachedtheaffectedmonitor•Visiblesatellitemaps•MODISdataandothersatellitedataofaerosolopticaldepth,NO2•HighCOorPM•Regionalozoneconcentrationmaps•RegionalPM2.5concentrationmaps•RegionalPM2.5speciesmaps/plots•LevoglucosaninPM•Unusualconcentrationsofpotassium.•Unusualdiurnalprofileofconcentrations10EPA’sCommunicationPlanfortheExceptionalEventsRule•ContinuedinternalEPAcoordination,includingconsistencychecksusinginternalEPAExceptionalEventsWorkGroup•Continueddiscussionswithstate/local/tribalairagenciesandotherinterestedstakeholders•Additionaloutreachforthenewozonewildfireguidance,beforeEPAdraftsfulldocumentsforwiderreview•WebinarsoncontentoftheNPRManddraftguidancefollowingNPRMandreleaseofdraftguidance•Followingfinalruleandreleaseofnewguidance:•InternalEPAnationalconsistencyworkshop•Implementationworkshop(s)forstates,tribes,andotheraffectedstakeholders11ScheduleandNextSteps•ExceptionalEventsRuleRevisionsandGuidanceDevelopment•AnticipateproposingtherulerevisionsinFall2015andpromulgatinginsummer2016•Scheduleprovidespromulgatedrulerevisionschangesinadvanceofimplementationactivities(e.g.,Governors’recommendations)foranypotentialneworrevisedozoneNAAQS•Scheduleforwildfireozoneexceptionaleventsguidanceanticipatedtoparallelrulerevisioneffortsoguidancecanreflectpreamble/ruleconcepts•Provideadditionalguidance,asneeded,tosupportExceptionalEventsRulerevisions•ContinueddevelopmentofExceptionalEventstools(e.g.,website,templates,delegations)•Web‐basedquickreferencematrixonExceptionalEventswebsiteathttp://www.epa.gov/ttn/analysis/exeventsguide.htm•ImplementEPA’scommunicationplan•ExceptionalEventsBestPractices•ContinuetoseekandincorporateinputfromEPAregionsandstates•Includebestpracticesasrecommendationsinguidance,ruleorwebsiteresources•ToolsonanEPAwebsite•Continualimprovement,dissemination,outreach,education•Otherquestions/discussion12Arizona’sEEProcessImprovementAnalysisEricMassey13RoundtableDiscussion14Question1– Communications•Howcanwehaveeffectiveconversations/communicationaboutparticulardemonstrations,beforetheyaresubmittedandwhiletheyareatEPA?•WhatcanEPA‐OAQPSandtheRegionalOfficedotohelp?•Whatcanthestatesdo?15Question2– Completeness•WoulditbeusefultohaveadeadlineforEPAtomakeacompletenessfindingforasubmitteddemonstration?•ShouldafindingofincompletenessterminateEPA’sobligationtoreview?•ShouldafindingofcompletenessbarEPAfromaskingforfurtherinformationbeforeactingonthedemonstration?16Question3– Multi‐State/Multi‐JurisdictionEvents•Whatrulechanges,guidanceortoolscouldEPAprovide(shortofpreparingdemonstrations)tofacilitatethedevelopmentofmulti‐state/multi‐jurisdictionaldemonstrations?•Example1:Eventoccursinonestatebutaffectsmonitor(s)inotherstate(s)•Example2:Eventoccursonstatelandsbutaffectafederal/tribaloperatedmonitor17Appendix18RelevantBackground•March2007 – ExceptionalEventRulepromulgated•May2013‐EPAfinalizedinterimexceptionaleventsimplementationguidance•MemorandumtoRegionalAirDivisionDirectorswith2attachments•Attachment1‐FrequentlyAskedQuestionsdocument•Attachment2‐HighWindsGuidancedocument•May2013 – EPAannouncedintenttorevisetheExceptionalEventsRuleanddevelopwildfire/ozoneimplementationguidance•Anticipatedschedule– Fall2015/promulgationSummer2016•AugustthruNovember2013 – Stakeholderoutreachandlisteningsessionsrelatedtorulerevisions•December2014 – Exceptionaleventswebsiteredesignanddevelopment/publicationofexceptionaleventscriteria/pollutantmatrixwithlinkedexamples•Mid‐2014thruearly2015 – Focusedbestpracticessessionswithregionalofficesandstates19RelevantBackground•EPAdidnothaveexceptionaleventsimplementationguidanceuntil2013.•Asaresult,airagencieshadlimitedguidancere:thelevelofdocumentationandanalysestosupporteventclaimsandinmanycases,statessubmittedunnecessarydocumentation.•Statesalsosubmitteddocumentationforclaimsthatneverhadanypotentialregulatorysignificance,orthatmighthavehadregulatorysignificancedependingonlateryears’airquality,butultimatelywereshownnottohavesignificance.•Thesituationhasimprovedsinceour2013guidance,butproblemsremainbecausewearestilloperatingwithintheconstraintsofthe2007ExceptionalEventsRule.•Regionswithexceptionaleventsbacklogshaveprioritizedthesesubmittals,focusingonthosethataffectanear‐termregulatorydecisionandoftenformallyorinformallydeferringthosethateitherdonotaffectaregulatorydecisionorhave“aged‐out”(i.e.,theaffecteddatayearsarenolongerbeingusedforregulatorypurposes).•Feedbackfromairagenciesindicatesthatsomeregionsmaynoteffectivelycommunicatethestatusthesedemonstrations,leavingsubmittersunsureofwhatwouldmakeademonstrationapprovable.•Since2010,allEPAregionshaveparticipatedinanationalworkgrouptoimproveconsistency.Regionssharedemonstrationsandexperiences,butthedemonstrationreviewanddecisionmakingprocessstillvariessomewhatfromregiontoregion.•Thevastmajorityoftheexceptionaleventdemonstrationssubmittedsincepromulgationofthe2007ExceptionalEventsRulefocusonPMandhighwindevents,butstateshavealsosubmitteddemonstrationsforwildfiresaffectingbothozoneandPMconcentrations,stratosphericozoneintrusion,volcanicactivity,fireworks,andprescribedrangelandburning.20QuestionsforBestPractices/LessonsLearnedDiscussions•Intermsoftheprocess,whathasworkedwellandwhatcouldbeimprovedtomaketheEEdemonstrationandreviewprocessmoreefficient?•WhatprocessaidshaveyoudevelopedorusedtoassistwiththepreparationandsubmissionofEEdemonstrations?•WhattechnicaltoolsareyouusingtosupportEEdemonstrations?•DoyouuseanoticeofintenttofileanEEdemonstration,atemplateorachecklistsuchasprovidedinEPA’sEEHighWindEventguidance?Ifnot,whynotandwhatsuggestionsdoyouhavetomakethesetypesofprocessaidsmoreuseful?•HowaretheAQSEEflagsusedbyyouragency?HowusefularetheEErule’sgeneralschedulefordataflaggingandtheadditionaldataflagoptions?•Howdoyoutrack,manageandcommunicatewithEPAabouttheEEdemonstrationsyouintendtooractuallydosubmit?HowdoesyourregioncommunicatewithyouaboutEEdemonstrationsthatyouhavesubmittedanddoyouhavesuggestionsforimprovement?•WhatotherprocessaidsortechnicaltoolsdoyouthinkEPAcoulddeveloporprovidetohelpstandardizetheEEdemonstrationprocessandreduceinefficiencyforusebyallstatesfordifferenttypesofevents(asappropriate).•AnyotherideasyouthinkEPAshouldconsiderregardingEEdemonstrationsthatwouldhelpyouandEPAprocessthedemonstrationsmoreefficiently?21RecentFederal RegisterNoticesofPotentialInterest•OzoneNAAQSNPRM(December17,2014)•OzoneSIPRequirementsFinalRule(March6,2015)•PM2.5SIPRequirementsNPRM(SignedMarch10,2015)•Keypointsinthesenotices:•Wildfirechallengesandconsequences•Needforandbenefitsofusingprescribedfiretomanagewildfirefuelloads•RACMconcept:•PrescribedfireaspotentialRACMtoreducewildfireemissions•BSMPaspotentialRACMtoreduceprescribedfireemissions•Ideasaboutattainmentplanbudgetsforfireemissions•“Dependingonthenatureandscopeofinterstateemissioneventsaffectingdownwindairquality,theEPAmaybeabletoassiststatesindevelopingapprovableexceptionaleventsdemonstrations.”22