ALASKA DEPARTMENT OF

ENVIRONMENTAL CONSERVATION

Amendments to:

State Air Quality Control Plan

Vol. II: III.D.5.3

Non-Attainment Area Boundary and Design Episode Selection

Adopted

September 7th, 2016

Bill Walker, Governor 

Larry Hartig, Commissioner
Adopted September 7, 2016

III.D.5.3-1

5.3 Nonattainment Area Boundary, Air Quality Control Zones, and Design 

Day Episode Selection

5.3.1 Nonattainment Area Boundary

After EPA lowered the 24-hour ambient PM2.5 standard from 65 micrometers per cubic meter 

(μg/m3) to 35 μg/m3 in December 2006, States were required to examine monitoring data 

collected within their communities and make designation recommendations based on the new 

standard by December 2007. After an examination of monitoring data collected at the State 

office building in downtown Fairbanks from 1999–2006, DEC recommended that Fairbanks be 

designated nonattainment for the revised PM2.5 standard. Based on this recommendation, EPA 

initiated a process to define the size of the PM2.5 nonattainment area within Fairbanks. Since 

monitoring data were collected at only one location, this process did not have much insight into 

how concentrations varied throughout the Borough. This resulted in EPA initially suggesting that 

a large portion of the Borough be designated nonattainment (to be conservative). In response, 

the State and Borough assembled an extensive set of data describing population density; terrain; 

meteorology; available air quality data, including limited measurements from Fort Wainwright 

and Eielson Air Force bases; available emission inventory estimates, etc. This information 

ultimately led to the selection of a much smaller final PM2.5 nonattainment boundary for 

Fairbanks. The PM2.5 boundary is different than the previously defined carbon monoxide (CO) 

boundary specified for Fairbanks. The boundary is important because it defines the area that is 

subject to regulatory controls needed to produce reductions in ambient concentrations needed to 

attain the standard. 

Figure 5.3-1 shows a map of the nonattainment area boundary. The EPA rulemaking 

establishing the PM2.5 nonattainment area1 included the following townships and ranges within 

the Fairbanks North Star Borough:

• MTRS F001N001W—All Sections;

• MTRS F001N001E—Sections 2–11, 14–23, 26–34; 

• MTRS F001N002W—Sections 1–5, 8–17, 20–29, 32–36; 

• MTRS F001S001E—Sections 1, 3–30, 32–36;

• MTRS F001S001W—Sections 1–30;

• MTRS F001S002E—Sections 6–8, 17–20, 29–36;

• MTRS F001S002W—Sections 1–5, 8–17, 20–29, 32–33; 

• MTRS F001S003E—Sections 31–32; 

• MTRS F002N001E—Sections 31–35;

• MTRS F002N001W—Sections 28, 31–36;

• MTRS F002N002W—Sections 32–33, 36;

• MTRS F002S001E—Sections 1–2;

• MTRS F002S002E—Sections 1–17, 21–24; and

• MTRS F002S003E—Sections 5–8, 18.

 1 Federal Register, Vol. 74, No. 218, Friday, November 13, 2009, pages 58688-58781.
Adopted September 7, 2016

III.D.5.3-2

Figure 5.3-1. Fairbanks PM2.5 Nonattainment Boundary

Eielson was excluded from the nonattainment area because monitoring data from the base 

showed that PM2.5 concentrations were dramatically lower than those collected in downtown

Fairbanks and meteorological data showed that upper air wind flows, which move the plume 

from the Central Heat and Power Plant, were rarely in the direction of the nonattainment area 

when concentrations were above the standard. Conversely, no measurements were available to 

document concentrations within the Ester and Goldstream Valleys. Since these areas are growing 

and have similar meteorology to the downtown area, where elevated concentrations have been 

recorded, they were included within the nonattainment boundary. Because preliminary 

measurements collected by the Borough at the Transportation Center on Peger Rd. and in North 

Pole indicated that these areas experienced elevated PM2.5 concentrations, they were also 

included within the nonattainment boundary.

A detailed rationale of the Nonattainment Boundary selection can be found in Appendix 

III.D.5.3. 
Adopted September 7, 2016

III.D.5.3-3

5.3.2. Air Quality Control Zones

DEC adopted 18 AAC 50.025(d) which establishes three “air quality control zones” within the 

nonattainment area to allow subarea-specific control measures. The zones (see Figure 5.3-2) are 

based on an ordinance adopted by the FNSB delineating the Fairbanks and Goldstream control 

zones and a boundary between Fairbanks and North Pole control zones developed by the FNSB 

Air Quality Program. The regulation follows:

• 18 AAC 50.025 (d)

To establish control measures for reduction of PM-2.5 within the Fairbanks and North 

Pole urban nonattainment area, the area is divided into three “air quality control zones” as 

follows:

(1) North Pole Control Zone;

(2) Fairbanks Control Zone; and

(3) Goldstream Control Zone.

The control zones allow DEC to develop sub-area specific regulatory control measures within 18 

AAC 50 to target area-specific problems. Recent monitoring data shown in table 5.3.2.1 

demonstrates the disparity in air quality at locations within the proposed control zones. It may 

prove reasonable and necessary in the future to identify controls specific to smaller sub-areas 

within the nonattainment area. 

Federal Reference Method (FRM) monitoring at the North Pole Fire 3# site has shown 

significantly higher concentrations of PM2.5 than Fairbanks FRM monitoring. The 2015 North 

Pole 24-hr design value calculated using quality controlled, non-exceptional event, FRM data 

from 2013, 2014, and 2015 is 124 μg/m3

. Table 5.3.2.1 summarizes FRM data and design values 

for North Pole and Fairbanks. 

Table 5.3.2.1

PM2.5 Monitoring Sites AQS Site ID 98th Percentile

(FRM)

2015 

24-hour

Design 

Value

(FRM)

2015 2014 2013 24-hr

Fairbanks / State Office Building 02-090-0010 35.3 34.5 36.3 35

Fairbanks / NCORE Site 02-090-0034 36.7 31.6 36.2 35

North Pole / North Pole Fire #3 02-090-0035 111.6 138.3 121.6 124
Adopted September 7, 2016

III.D.5.3-1

Figure 5.3-2. Air Quality Control Zones
Adopted September 7, 2016

III.D.5.3-1

5.3.2.1. North Pole Control Zone

The North Pole-Fairbanks air quality control zone boundary was recommended by the FNSB Air 

Quality Program. Figure 5.3-3 shows the boundary. The formal boundary between the North 

Pole and Fairbanks air quality control zones boundary follows this path:

• Beginning at the northeast corner of MTRS F001S001E Section 10; 

• Southwest to Hobgoblin lane;

• South along Hobgoblin Lane to its intersection with Prester John Drive; 

• West along Prester John Drive to its intersection with Sonja Street; 

• South along Sonja Street and continuing along the section line to its intersection with 

Badger Road; 

• Southwest along Badger Road to its intersection with the northern border of MTRS 

F001S001E Section 21; 

• West along the northern border to the northwest corner of MTRS F001S001E Section 21 

NE 1⁄4 NW 1⁄4; 

• South along the western border of MTRS F001S001E Section 21 NE 1⁄4 NW 1⁄4 to its 

intersection with Badger Road; 

• South on Badger Road to its intersection with the western border of MTRS F001S001E 

Section 21; and

• South along the section line and ending at the section line’s intersection with the southern 

nonattainment area border at the southwest corner of MTRS F001S001E Section 33.
Adopted September 7, 2016

III.D.5.3-2

Figure 5.3-3. Fairbanks-North Pole Air Quality Control Zone Boundary 
Adopted September 7, 2016

III.D.5.3-3

5.3.2.2. Fairbanks Control Zone

The Fairbanks Control Zone is separated from the Goldstream and North Pole control zones by 

the North Pole-Fairbanks (see figure 5.3-3) and Goldstream-Fairbanks (see figure 5.3-4) 

boundaries. Monitors located within Fairbanks suggest that Fairbanks air quality is improving 

and the design value is approaching the NAAQS concentration of 35 μg/m3. 

5.3.2.3. Goldstream Control Zone

The Goldstream Control Zone is the northern portion of the nonattainment area which is not 

included in the FSNB Air Quality Control Zone encompassing DEC’s Fairbanks and North Pole 

control zones. Figure 5.3-4 shows the Goldstream Fairbanks control zone boundary. The 

Goldstream-Fairbanks control zone boundary is defined in FNSB Ordinance 8.21.010 as 

modified by FNSB Resolution 2015-12.

The boundary between Fairbanks and Goldstream control zones is the Northern Border of the 

FNSB “Air Quality Control Zone” generally defined in 8.21.010 as:

“Air quality control zone” means the area of the borough currently contained in the EPA 

designated nonattainment area, which uses the nonattainment area southern, western and 

eastern boundaries as modified by their respective intersection with the following 

northern boundary described as: beginning at the intersection of Isberg Road with Chena 

Ridge Road on the western boundary of the EPA designated nonattainment area, then 

following Chena Ridge Road back to Chena Pump Road and continuing north on the 

Parks Highway to Sheep Creek Road, then Sheep Creek Road to Miller Hill Road, then 

north on Miller Hill Road, then east on Yankovich, then north from Yankovich Road 

along the east boundary of the Large Animal Research Station to a point just north of its 

intersection with Nottingham Drive and follows the ridge crest across Nottingham Estates 

to approximately the point where Swallow Drive intersects Dalton Trail to north on 

Dalton Trail to the crest of the Farmer’s Loop Ridge, then follow the geographic crest of 

Farmer’s Loop Ridge to its intersection with the New Steese Highway, then southeast on 

Bennet Road, and along Steel Creek Road to the intersection of Chena Hot Springs Road, 

and Chena Hot Springs Road to the eastern boundary of the EPA designated 

nonattainment area.

The general description references geographic ridgelines which is undesirable because they cross 

individual properties. To correct this, FNSB Air Quality staff administratively defined the 

northern boundary of the Air Quality Control Zone using public right-of-way, subdivision 

boundaries, and individual lot boundaries, while following the intended geographic features as 

closely as possible. On March 26, 2015, the FNSB adopted Resolution number 2015-12 to 

confirm these exact boundaries of the air quality control zone. The resolution is included as 

Attachment B to Appendix III.D.5.03.
Adopted September 7, 2016

III.D.5.3-1

Figure 5.3-4. Goldstream-Fairbanks Control Zone Boundary
Adopted September 7, 2016

III.D.5.3-1

5.3.3. Summary of Design Day/Episode Selection for the Fairbanks PM2.5 

Nonattainment

Sections 108 and 109 of the Clean Air Act (CAA) require EPA to regularly review and update

the NAAQS. As previously discussed, in 2006 EPA strengthened the 24-hour fine particle 

standard from the 1997 level of 65 μg/m3 to 35 μg/m3, and retained the annual fine particle 

standard at 15 μg/m3. In 2012, EPA retained the 24-hour PM2.5 standard, but strengthened the 

annual standard to12 μg/m3

. Elements of the NAAQS include the indicator, averaging period, 

level, and form of the standard. The indicator specifies the pollutant and whether it is primary or 

secondary; the averaging period specifies whether it is 24-hour, annual, etc.; the level specifies 

the concentration that provides protection for public health; and the form specifies the metrics 

used to assess compliance with the level of the standard (e.g., average annual, 98th percentile, 

etc.). 

The 24-hour PM2.5 standard is calculated using a three-year average of annual 98th percentile 

values. The “design value” is calculated from a three-year period of data EPA defines as the 

reference for assessing progress towards attainment. EPA specified 2008 as the base year for 

areas designated as nonattainment for the 2006 24-hour PM2.5 standard. The design value for the 

base year was calculated from 98th percentile values for 2006, 2007, and 2008. A description of 

that calculation is presented in Appendix III.D.5.8. The base year 2008 design value calculated 

for Fairbanks is 40.7 μg/m3. The design value is updated with each new year of monitoring data 

(i.e., it changes year to year). 

In order to assess the impact of air quality controls, it is necessary to first model the baseline 

conditions that lead to concentrations that are representative of the Fairbanks design day. Since 

2008 was selected as the base year for planning, the Borough, ADEC, and EPA evaluated the 

monitoring and meteorological data from that year to find episodes that could be used to 

represent typical conditions in Fairbanks when concentrations exceed the standard at “design 

day” levels. The agencies reviewed the monitored concentrations, meteorological conditions, 

and the results of a principal component analysis of their relationship to find episodes that met 

the criteria listed below.

• Days with 24-hour concentrations near 41 μg/m3 (the design day is the average of the 

modeling episode dates ambient monitored by FRM and/or BAM).

• Days with speciation measurements available to provide insight into the chemical 

composition of recorded mass and an assessment of model performance.

• Meteorological conditions that represent typical inversion scenarios for days exceeding 

the standard—these are steady-state conditions where high concentrations ebb and flow 

and there is no appreciable change in meteorology.

• Meteorological conditions that represent a period when an approaching high-pressure 

system causes a rapid increase in concentrations. 
Adopted September 7, 2016

III.D.5.3-2

• Episodes having multiple days above the standard and in the vicinity of the design day to 

provide better statistical confidence from modeling analyses.

• A sufficient “lead-in” period of 3-4 days prior to a higher concentration event to allow an 

air quality model to come to equilibrium and then follow natural fluctuations in 

pollutants.

Ultimately the agencies selected the two periods described below for use in the planning process.

1. January 23 – February 10, 2008. This episode would provide insight into conditions for 

near design day concentrations as well as more severe conditions producing substantially 

higher concentrations (i.e., those associated with an advancing high-pressure system). 

This is a period with colder temperatures. A summary of the concentrations and 

temperatures recorded for each day as well as the availability of speciation data is 

presented in Table 5.3-1.

2. November 2 -17, 2008. This episode reflects the stable conditions with the ebb and flow 

in concentrations; it has a corrected BAM value of 41.1 and an FRM value on the 

preceding day of 40.4. It occurs under relatively warmer temperatures, with lower space 

heating emissions and lower ventilation rates. A summary of the concentrations and 

temperatures recorded for each day, as well as the availability of speciation data, is 

presented in Table 5.3-2.

These multi-day episodes meet the above criteria and allow for analysis of days leading up to 

high concentrations, design day conditions, and days that exceed design day conditions. These 

episodes provide a reasonable baseline for analyzing controls to see what impact they have on 

reducing emissions to levels below the standard, while also allowing the Borough to assess how 

those controls may impact days with concentrations that exceed the 41 μg/m3 design value.
Adopted September 7, 2016

III.D.5.3-3

Table 5.3-1

Summary of Fairbanks PM2.5 Concentrations* and Daily Temperatures

During January/February 2008 Design Episode

Date

24-hour Concentrations

(μg/m3)

Daily Temperatures

(oF)

FRM BAM

Speciation

Data Available Max Min Average

01/23/08 5.9 23 -11 6

01/24/08 27.2 -4 -30 -17

01/25/08 17.5 22.2 Yes 0 -31 -15

01/26/08 46.8 -25 -44 -34

01/27/08 35.8 -12 -43 -27

01/28/08 19.6 22.2 Yes -6 -24 -15

01/29/08 42.0 -20 -31 -25

01/30/08 55.1 -15 -28 -21

01/31/08 No Data 19.9 Yes -6 -15 -10

02/01/08 24.0 -5 -14 -9

02/02/08 13.2 -8 -30 -19

02/03/08 23.5 24.8 Yes -19 -40 -29

02/04/08 51.7 -29 -44 -36

02/05/08 68.2 -29 -46 -37

02/06/08 No Data 71.0 Yes -30 -47 -38

02/07/08 61.1 -29 -47 -38

02/08/08 73.4 -24 -46 -35

02/09/08 40.5 45.7 Yes -15 -44 -29

02/10/08 32.7 -12 -48 -30

* FRMs are operated once every three days; BAMs collect hourly values, which are used to calculate 24-hour 

averages.
Adopted September 7, 2016

III.D.5.3-4

Table 5.3-2

Summary of Fairbanks PM2.5 Concentrations* and Daily Temperatures

During November 2008 Design Episode

Date

24-hour Concentrations

(μg/m3)

Daily Temperatures

(oF)

FRM BAM

Speciation

Data Available Max Min Average

11/02/08 15.5 15.6 8 -6 1

11/03/08 6.6 12 2 7

11/04/08 9.7 14 -2 6

11/05/08 40.4 38.8 7 -10 -1

11/06/08 41.1 8 -11 -1

11/07/08 26.8 1 -17 -8

11/08/08 37.0 35.6 Yes 2 -12 -5

11/09/08 41.1 1 -15 -7

11/10/08 23.4 16 -5 6

11/11/08 27.4 23.7 Yes 17 -1 8

11/12/08 11.9 14 3 9

11/13/08 20.4 15 -9 3

11/14/08 50.7 51.1 Yes 3 -11 -4

11/15/08 29.4 14 -2 6

11/16/08 48.4 8 -13 -2

11/17/08 20.0 18.9 16 3 10 * FRMs are operated once every three days; BAMs collect hourly values, which are used to calculate 24-hour 

averages.
ALASKA DEPARTMENT OF

ENVIRONMENTAL CONSERVATION

Amendments to:

State Air Quality Control Plan

Vol. II: III.D.5.7

Control Strategies

Adopted

September 7th, 2016

Bill Walker, Governor 

Larry Hartig, Commissioner
Adopted September 7th, 2016

III.D.5.7-2

5.7 Control Strategies

CAA section 172(c)(1) describes the general attainment plan requirement for reasonably 

available control measures (RACM). Attainment plan submissions must “provide for the 

implementation of all reasonably available control measures as expeditiously as practicable 

(including such reductions in emissions from existing sources in the area as may be obtained 

through the adoption, at a minimum, of reasonably available control technology) and shall 

provide for attainment” of the NAAQS.

CAA Part D, Subpart 4 has also been determined to apply to PM2.5 attainment plans.1 Section 

189 (a)(1)(C) requires that RACM measures in designated Moderate nonattainment areas be 

implemented no later than 4 years after designation. 

5.7.1 Reasonably Available Control Technology (RACT)

Large stationary sources are a subgroup of emissions sources that are given special attention in 

the RACM analysis. These units are subject to site-specific review for Reasonably Available 

Control Technology. The U.S. EPA has defined RACT as “the lowest emission limitation that a 

particular source is capable of meeting by the application of control technology that is reasonably 

available considering technological and economic feasibility.” 2

Per EPA guidance, DEC evaluated all emission units with emissions greater than 5 tons per year

(TPY) of PM2.5 (see Appendix III.D.5.7 for RACT details) or its precursors (NOx and SO2). All 

PM2.5 precursors were addressed (NOx, SO2, NH3, VOCs), but only NOx and SO2 were 

addressed on an emission unit basis. Based upon that analysis, DEC in consultation with the 

FNSB has concluded that the current level of controls meets RACT for all of the pollutants from 

all of the emission units. 

See the section on RACT for more details.

5.7.2 Reasonably Available Control Measures (RACM) for other sources

Identification of RACM is a 5-step process:

• Step 1: Identify source categories with non-trivial emissions of PM2.5 or its precursors.

• Step 2: For each source category, source, or activity from Step 1, develop a list of 

technologically feasible emission control technologies and/or measures.

• Step 3: For each technologically feasible control measure, evaluate emission reductions 

and costs. Identify and exclude economically infeasible measures.

• Step 4: Determine whether control measure can be implemented within 4 years of 

designation.

• Step 5: Identify Reasonably Available Control Measures. 

 

1 Natural Resources Defense Council(NRDC) v. EPA, No. 08-1250 (D.C. Cir., Jan. 4, 2013)

2 44 FR 53762 (September 17, 1979)
Adopted September 7th, 2016

III.D.5.7-3

The following source categories were evaluated for RACM. This list is based on emissions 

inventory information and other technical analyses that identify the most important sources for 

PM2.5 in the nonattainment area.

• Wood burning

o Outdoor wood-burning boilers (hydronic heater) 

o Wood stoves

o Fireplaces

o Burn barrels, residential open burning

o Agricultural and forest burns

• Residential fuel oil combustion

• Transportation

o Automobiles

o Heavy-duty vehicles

DEC, in consultation with the FNSB, has determined that the following control measures are 

RACM. Details of the analysis supporting these determinations are provided in Appendix 

III.D.5.7.

• Education and outreach programs for wood combustion.

• Voluntary curtailment of wood burning on episode days.

• Require new wood combustion units to be EPA-certified.

• Provide subsidies to encourage retirement/replacement of old, noncertified wood-burning 

equipment.

• Open-burning bans on episode days.

• Prohibit the use of burn barrels.

• Subsidize heating upgrades and weatherization

Many of these measures are already implemented. Details of current and planned programs are 

provided below.

The FNSB PM2.5 nonattainment area relies on several primary control strategies coupled with 

additional voluntary measures to mitigate PM2.5 air pollution.During the period 2008-2013, a 

number of programs were implemented to encourage changes in behavior that produce emission 

reductions. The FNSB and DEC continue to operate these programs and plan to do so in the 

future. Since these programs are voluntary and it is difficult to quantify their impact on behavior, 

the attainment demonstration and weight of evidence discuss the likely impacts of voluntary 

measures on attainment. The total credit taken for all voluntary measures is 0.5 μg/m3. 

Following the adoption and submission of the moderate area SIP control measures in January of 

2014, the Borough has adopted additional control measures into Title 21 Chapter 28 (previously 
Adopted September 7th, 2016

III.D.5.7-4

8.21) of the borough ordinances.3,4,5,6,7,8,9,10 The ordinances have been adopted into SIP 

Appendix III.D.5.12 – Assurance of Adequacy. The impact of these ordinances on the existing 

control measures is explained in the following sections. 

5.7.2.1 Space Heating and Solid Fuel Heating Controls

The use of solid fuels, wood and coal, for home heating is an important source of PM2.5 air 

pollution in the nonattainment area. Winter heating costs are high and many residents rely on 

solid fuel burning as an economic way to heat their homes, often as a supplement to heating with 

more expensive fuel oil. In order to reduce PM2.5 emissions from solid fuel heating devices, the 

FNSB and DEC have developed a number of measures that work together to lower emissions 

from this important source in a manner that accounts for an on-going need to use wood and coal 

as an economical heating source either as their sole source of heat or, more typically, as a 

supplement to fuel oil or electric heat. These measures will:

• upgrade solid fuel heating devices in the community with new, cleaner burning units,

• encourage best burning practices for solid fuel heating devices through the use of 

appropriate fuels, maintenance, and operation, 

• implement a staged air quality event plan that contains requirements to switch to fuel oil, 

electricity, propane, or natural gas fuels for space heating on days with poor air quality, 

and 

• address heaters with excessive smoke through a combination of public education, 

compliance assistance, and regulatory enforcement.

At the same time, the local and state government are working to encourage energy efficiency and 

weatherization to reduce heating needs. In the long term, efforts are underway to bring 

economical natural gas to the community to help reduce resident’s energy costs and allow for a 

cleaner burning fuel for space heating. The following subsections describe space heating control 

programs, with an emphasis on the solid-fuel heating programs, that are being implemented or 

that are planned for implementation in the 2008-2019 time period.

5.7.2.2 Solid-fuel Fired Heating Devices Upgrades and Emission Standards

Starting in June of 2010, the FNSB established an incentive program to encourage homeowners 

to replace their old, uncertified solid-fuel heaters with new EPA certified heaters. Upgrade or 

removal of solid-fuel heaters provides for immediate and long term emission reductions in PM2.5. 

 3 Fairbanks North Star Borough Assembly Ordinance No. 2015-01, February 27, 2015 4 Fairbanks North Star Borough Assembly Ordinance No. 2015-18, April 23, 2015 5 Fairbanks North Star Borough Assembly Ordinance No. 2015-29, June 25, 2015 6 Fairbanks North Star Borough Assembly Ordinance No. 2015-73, January 14, 2016 7 Fairbanks North Star Borough Assembly Ordinance No. 2016-21, May 4, 2016 8 Fairbanks North Star Borough Assembly Ordinance No. 2016-37, July 28, 2016 9 Fairbanks North Star Borough Assembly Ordinance No. 2016-30, April 28, 2016 10 Fairbanks North Star Borough Assembly Ordinance No. 2016-20-1A, August 11, 2016
Adopted September 7th, 2016

III.D.5.7-5

As heating fuel costs increased during the past 5 years, a large number of outdoor wood and coal 

boilers were installed by residents seeking to reduce their heating costs. These large units have 

proven problematic in some neighborhoods creating significant localized smoke impacts. The 

volume of solid fuel heaters, whether large or small, have combined to increase PM2.5 levels 

significantly and the Borough has identified a number of “hot spot” neighborhoods. In its 

implementation of the change out program, the Borough has sought to prioritize their funds for 

upgrading units into areas with high PM2.5 concentrations.

The change-out program has been popular with local residents and has evolved between 2010

and 2014 as the FNSB adapted and improved the program to create additional incentives for 

participation. From inception through August 2014, the Borough has repaired, replaced, or 

removed significant numbers of solid-fuel heaters. Table 5.7-1 provides the numbers of heaters 

changed out in various categories. Figure 5.7-1 provides a map of the locations of change outs 

or heater removals throughout the nonattainment area. Between 2008 and 2019, the Borough 

plans to incentivize the replacement of nearly all the uncertified wood heating devices in the 

nonattainment area. An estimated 4,640 heater replacements or removals will be completed by 

2019 (2,760 from the Borough’s program and 1,880 from natural turnover).
Adopted September 7th, 2016

III.D.5.7-6

Table 5.7-1

Woodstove Change Out Statistics (as of 9/9/14)

Device Type Total Devices Removed, 

Replaced, or Repaired

Percentage of 

Total Change 

Outs

Replace Solid Fuel Burning Device 

(SFBD) 1130 74.7%

Replace Outdoor Hydronic Heater 

(HH) 37 2.4%

Removal of SFBD (not replaced) 195 12.6%

Removal of Outdoor Hydronic Heater

(not replaced) 72 4.8%

Remove of Indoor Hydronic Heater

(not replaced) 16 1.1%

Repairs to EPA certified devices 48 3.2%

Fireplace Replacements 17 1.5%

Figure 5.7-1
Adopted September 7th, 2016

III.D.5.7-7

In addition to the Borough’s change out program, the Alaska Legislature also funded the Alaska 

Resource Agency (ARA) to conduct a project that resulted in the retrofit of outdoor hydronic 

heaters (OHHs) within the nonattainment area. ARA identified and retrofitted 40 outdoor 

hydronic heaters with ClearStak or similar pollution control devices. The retrofits were 

performed in late 2011 and 2012 resulting in emission improvements for these heating units

which are further described in the Emission Inventory, Section 5.6.

In order to provide support for the Borough’s change out program, in November 2014, the state 

adopted a new regulation that requires that all new wood-fired heating devices being installed 

within the nonattainment area meet emission standards more stringent than the 1988 EPA New 

Source Performance Standards. A copy of the adopted regulation, 18 AAC 50.077, is included 

in Appendix III.D.5.7. Under the regulation, new wood-fired heating devices in the 

nonattainment area meet the following emission standards:

Table 5.7-2

Device Type PM2.5 Emission Standard

Woodstoves* 2.5 grams/hour

Wood Hydronic Heaters 2.5 grams/hour

Wood Heating Appliances

Greater than 350,000 btu/hr heat output

2.5 grams/hour

*woodstoves covered by this emission standard are defined in the same manner as wood heaters defined and certified by EPA 

under 40 CFR part 60.531

The emission standards are set at a level of 2.5 gram/hour for wood stoves, wood-fired outdoor 

hydronic heaters, and larger wood-fired heaters (greater than 350,000BTU heat output). The 

state regulatory program relies on EPA and ASTM test methods. Testing of wood stoves and 

outdoor wood hydronic heaters is already being conducted by manufacturers to determine 

compliance with EPA certification and voluntary approval programs and can be relied upon to 

demonstrate compliance with the state regulation assuming the unit being tested is found to meet 

the 2.5 g/hr limit. ADEC’s analysis of these emission standards showed that wood-fired heaters 

of various sizes meeting these standards are available in the marketplace at a variety of price 

points. 

The Borough’s ongoing change out program includes new requirements that are more stringent 

than state standards. However they only apply to the Borough’s air quality control zone. Borough 

ordinance 2015-73, adopted January 14, 2016, limits the change out program to the air quality 

control zone and sets emission limits for solid fuel-fired heating devices that are installed as part 

of the change out program. Wood and pellet stoves must be EPA-certified with an annual 

average PM2.5 emission rating of 2.0 grams per hour or less. Hydronic heaters must be pelletfired, EPA-certified, and have an emission rate of 0.10 pounds per million BTU or less. These 

emission standards are designed to adopt EPA’s wood-fired heater New Source Performance 

Standards (NSPS) 2020 emission limits early for devices installed as part of the change out 

program. 
Adopted September 7th, 2016

III.D.5.7-8

The Borough also adopted requirements for home heating device installations inside the air 

quality control zone that are not conducted as part of the change out program.

11 The Borough 

established minimum hydronic heater setback requirements away from lot lines and sensitive 

locations. These requirements limit the number of properties where a hydronic heater may be 

installed to more rural areas due to generally larger lot sizes in less populated areas. For all solid 

fuel-fired appliances, the device must be EPA-certified and have an annual average emission 

rating of 2.5 grams per hour or less or 0.10 lbs/mmBtu for hydronic heaters. The ordinance 

requires all solid fuel-fired heating devices to meet these standards, effectively prohibiting the 

installation of other types of solid fuel-fired heating devices, including coal, unless the Borough 

approves an independent emission test showing the device meets the emission standards.

ADEC’s regulations help to ensure that replacements of wood-fired heaters occurring beyond the 

change out program within the entire nonattainment area are also moving toward the cleanest 

burning heaters available in the marketplace. The 2014 ADEC regulations do not mandate any 

change out of existing wood-fired heating devices and allow existing heaters to continue to be 

used in area homes. However, Section 5.10 illustrates how ADEC regulations will require 

change out of non-EPA certified devices upon real estate transactions as a contingency measure 

should the area be designated by EPA as a Serious Nonattainment Area. The Borough’s change 

out program, described previously, will continue to be used to incentivize a higher than normal 

rate of wood heater replacements within the air quality control zone. ADEC will work with 

retailers of wood heating devices in the implementation of the emission standards to ensure 

compliance for units being sold for installation in the nonattainment.

Efforts at the federal level also play a role in providing emission reductions from wood-fired 

heating devices, through programs that reduce emissions at the point of manufacture. The EPA 

has a certification program for new wood heaters. The rules governing emissions from new 

woodstoves (NSPS) were established in 1988 and updated in 2015. The 1988 PM standards 

affected adjustable burn rate stoves and pellet stoves. A voluntary program for hydronic heaters 

was developed to promote the development of cleaner burning technology. The EPA Phase II 

Hydronic Heater Partnership Agreement set voluntary emission limits that manufacturers could 

voluntarily meet to earn “white tags” for qualifying models. An update to the 1988 NSPS that 

was effective May 15, 2015 set emission limits for new wood heaters including woodstoves, 

pellet stoves, wood-fired hydronic heaters, forced-air wood furnaces, and single burn rate wood 

stoves. The NSPS is set to initially comply with the Washington State PM emission limit for 

wood stoves and pellet stoves of 4.5 grams per hour. Wood-fired hydronic heaters initially must 

meet the emission limits in the existing voluntary Phase II Program. ADEC’s emission limits are 

currently more stringent at 2.5 grams per hour for woodstoves, pellet stoves, and wood-fired 

hydronic heaters. In 2020, the EPA NSPS will require manufacturers to meet lower PM 

emission limits of 2.0 grams per hour for wood and pellet stoves and 0.10 pounds of PM per 

million BTU of heat output for wood-fired hydronic heaters. These limits will be more stringent 

than ADEC’s limit of 2.5 grams per hour. The EPA NSPS requirements will provide additional 

long term benefits to the nonattainment area during routine turnover and installation of cleaner 

burning devices as older wood-fired heaters are replaced by homeowners.

5.7.2.3 Improving Solid-Fuel Heating Device Operations 11 Fairbanks North Star Borough Ordinance No. 2015-73, adopted January 14, 2016
Adopted September 7th, 2016

III.D.5.7-9

In order to achieve the greatest PM2.5 emission reductions, it is critical that solid-fuel fired 

heating devices be operated correctly by local residents. The Borough and ADEC have 

developed a set of complementary measures to help improve the operation of these heating 

devices within the nonattainment area. These measures include extensive public education, 

incentives for the use of wood pellets or energy logs, and regulations addressing visible 

emissions from stacks and the use of appropriate fuels in solid-fuel heating devices. 

Public outreach is an important component of the Fairbanks air quality program with respect to 

improving resident’s use of solid-fuel heating devices thereby reducing PM2.5 emissions. Public 

outreach efforts focus on measures residents can take to protect themselves and to reduce PM2.5

emissions from activities like wood and coal burning. The Borough and ADEC have developed 

and implemented an extensive outreach effort to encourage residents to employ “best burning” 

practices when using wood heating devices. In 2011, the Borough started the “Split, Stack,

Store, & Save” campaign which encourages residents to plan ahead by cutting and properly 

storing a winter season’s worth of wood a full year before they plan to use it. In 2014, the 

Borough instituted the Voluntary Burn Cessation Program (VBCP) which alerts residents to 

current or inpending Air Quality advisories and asks them to volunarily cease burning wood 

during the episode. And just recently the Borough started giving away wood moisture meters 

and “Burn Wise”® CD’s to each applicant to the Woodstove Exchange Program. Borough Air 

Quality staff adminster a quiz based on the content of the CD and go over any incorrect answers 

to ensure the applicant understands the correct way to operate their new EPA certified device and 

the benefits to operating it in the correct manner. This outreach will continue and be improved 

upon based on experience in the coming years.

In addition to public outreach, it is critically important that individuals use the appropriate fuels 

in their wood-fired heating device. To promote cleaner burning devices and practices, the 

Borough is providing incentives through the change out program for wood pellets and energy 

logs. When used appropriately in wood-fired heating devices, these manufactured dry wood 

products signficantly reduced emissions. In 2014, the Borough supplied vouchers for 210 tons of 

energy logs and pellets to indivuals who participated in the woodstove exchange program. Each 

participant currently receives one ton of product when they have met all requirements of the 

program.

To further support the efforts to reduce emissions through the proper operation of solid-fuel 

heating devices, ADEC is implementing programs and regulations to address this issue. These 

programs primarily promote the use of correct fuels, especially related to dry wood.

In 2014, ADEC established a voluntary program (Moisture Disclosure Program) to register wood 

sellers that sell dry wood or that agree to provide wood moisture content information to 

consumers at the time they purchase wood. This voluntary program is meant to encourage a dry 

wood market and provide additional information to residents that buy wood for use in the 

nonattainment area. By registering and publishing information on vendors that sell dry wood or 

that verify moisture content, consumers are made aware of whether the wood they purchase 

needs to be seasoned or whether it is ready for burning immediately. Burning dry wood is 
Adopted September 7th, 2016

III.D.5.7-10

important for correct operation of both newer and older wood-fired heating devices. Not only is 

the burning of dry wood more efficient, but it signficantly reduces PM2.5 emissions.

In December 2014, the state adopted a new regulation that requires that individuals operating a 

solid fuel burning device inside the nonattainment area use the appropriate fuel (wood or coal) in 

their device and a requirement that dry wood be burned in the winter months. Borough code 

requires the use of dry wood year round.12 A copy of the adopted state regulation, 18 AAC 

50.076 is included in Appendix III.D.5.7. This regulation is meant to ensure that residents do not 

burn inappropriate materials, such as trash, in their solid fuel heating devices. The regulation 

also requires that only dry wood products, 20% moisture content or less, be burned in wood-fired 

heating devices during the winter period inside the nonattainment area

To further assure that wood heating devices are being operated properly, the ADEC adopted 

regulations in 18 AAC 50.075 (see Appendix III.D.5.7) that revised the standards for visible 

emissions or opacity of smoke from stacks with a focus on PM2.5 air quality episodes. The 

revisions to the regulation coupled with the emergency episode provisions defined in section 

5.11 of this plan, require that solid fuel-fired heaters meet 20% opacity limits during PM2.5 air 

quality episodes. This standard reflects improvements in wood heating technology and the need 

to burn cleanly particularly during air quality episodes. Newer wood-fired heating devices emit 

much less smoke than those manufactured decades ago. When operating properly, new wood 

stoves have little to no visible smoke emissions. If devices are operated improperly or with wet 

wood, dense smoke can be emitted from stacks. The opacity regulations for wood-fired heating 

devices assist the ADEC in responding to citizen complaints about smoky stacks in their 

neighborhoods and in addressing high emitting devices, particularly during periods of poor air 

quality.

Regulatory revisions were also proposed in 2014 to address community concerns regarding

visible emissions for coal-fired heaters. Although not a major contributor overall to local PM2.5

emissions at this time, the use of coal for heating residential homes and businesses has seen an 

increase and resulted in localized nuisance complaints related to smoke from these heating 

devices. Comments received on the state’s regulatory proposal suggested that another section of 

the state regulations, 18 AAC 50.055 (Industrial Processes and Fuel-Burning Equipment), 

already applies to coal-fired heating devices and has a lower opacity requirement (20%) than 

wood-fired heating units during air quality advisories. As a result, DEC did not move forward 

with its plan to expand 18 AAC 50.075 to include coal-fired heating devices. Regulatory 

revisions in 2016 resolve this potential conflict by lowering the opacity requirement in 18 AAC 

50.075 to 20% to match 18 AAC 50.055. All solid fuel-fired heating devices are required to 

meet the 20% opacity limit during air quality advisories, including coal-fired heaters.

ADEC is responsible for enforcing compliance with the state regulations. The department’s 

compliance activities are conducted using the tools and authorities provided under the state 

statutes. The Division of Air Quality does not have statutory authority to issue administrative 

penalties for violations of Alaska environmental law. This means that ADEC staff cannot simply 

write “tickets” to individuals that are found to be violating state regulations. All compliance and 

enforcement activities are case specific. However, ADEC generally initiates compliance 

 12 Fairbanks North Star Borough Assembly Ordinance No. 2015-01, February 27, 2015
Adopted September 7th, 2016

III.D.5.7-11

activities in response to complaints received that indicate the potential for violations of a state 

regulation. ADEC staff investigate complaints to verify or corroborate a problem or violation of 

a state requirement. In most cases, the department finds that compliance can be achieved 

through assistance to businesses and individuals in understanding the regulatory requirements 

and how they can comply. In the event that compliance assistance is not successful in resolving 

a compliance issue, department staff use administrative enforcement tools such as written notices 

of violation, compliance agreements, nuisance abatement orders, and in rare cases, civil court 

actions. 
Adopted September 7th, 2016

III.D.5.7-12

5.7.2.4 Encouraging Reduced Use of Solid-Fuel Heaters During Air Pollution 

Episodes

The FNSB and ADEC Air Programs work together to forecast daily air quality during the winter 

and asks citizens to curtail their use of wood fired heating devices on days projected to have poor 

dispersion and higher PM2.5 concentrations. Public outreach is an important component of this 

strategy. Public outreach efforts focus on informing the public of air quality alerts, explaining 

why they were called, and giving residents options in the case of an alert. Advisories are called 

during winter months when forecasts indicate that the 24-hour average PM2.5 standard is likely to 

be exceeded. During an episode, the Borough will notify local media that conditions exist that 

can cause a violation of the ambient PM2.5 standard. As part of the advisory, the public is 

informed of voluntary measures they can take to protect themselves and to reduce PM2.5

emissions from activities like wood and coal burning.

Surveys have shown that less than 4% of residences (1,280) located within the nonattainment 

area rely on wood as their only source of heat. However the high cost of heating oil and extreme 

cold temperatures force many residents to rely heavily on solid fuels to supplement their base 

fuel oil heating to prevent freezing homes. This makes mandatory wood heating curtailment 

unreasonable to implement during extreme cold temperatures. However, surveys have revealed a 

willingness on the part of some residents to shift away from solid fuel use during periods of poor 

air quality. It is therefore projected that a voluntary episodic wood and coal burning curtailment 

program could have benefit in reducing air pollution during poor air quality episodes. Greater 

numbers of residents are more likely to shift from wood or coal to another heating fuel when 

temperatures are warmer (e.g. warmer than -10 degrees F) as they may be less reliant on 

supplemental heat during these warmer episodes. During 2014, the Borough increased its efforts 

in this area by instituting a (VBCP).

The FNSB has established a program to encourage, incentivize, and facilitate the voluntary 

cessation of the use of wood burning appliances (i.e., wood stoves, wood-fired hydronic heaters, 

wood-fired furnaces, fireplaces, fireplace inserts, masonry heaters or pellet fuel burning 

appliances) in the nonattainment area during air quality alerts. It is recognized that it will be 

difficult or impossible for some households to participate in this program (e.g., those that heat 

solely with wood or for which wood is a necessary supplement during periods of cold weather). 

Therefore, this program is intended for households that are able to use space heating alternatives 

with significantly lower PM2.5 emissions, including those fueled by gas, oil, electricity, propane 

or district heat.

The VBCP consists of 5 separate components; an Alert System, Social Media, Public Awareness, 

Marketing, and Incentive program.

• Alert System: Alert media selected as the notification platform. Alert messages during 

episodes are sent out through email, text messaging and social media.

• Social Media: Alerts, daily forecast, and program signup are available via Facebook.

• Public Awareness: 4 updateable reader-boards and 10 static sandwich board signs placed 

alongside roads in Fairbanks and North Pole displaying VBCP activity.
Adopted September 7th, 2016

III.D.5.7-13

• Marketing: Radio, TV, and Newspaper advertising to create awareness of the VBCP and 

current air quality. 

• Incentives: The Borough will recognize all participants of the program at the end of the 

year through a Fairbanks Daily Newsminer advertisement. 

In addition to the Borough’s air quality episode restrictions described in 5.11, starting in 2015, 

ADEC implemented regulations (18 AAC 50.075(d)) that provide for more stringent visible 

emission (opacity) requirements for wood-fired smoke stacks during air pollution events. As 

described further in section 5.11, air quality episodes will trigger this requirement when 24-hour 

concentrations exceed 25 μg/m3. The public health concerns associated with poor air quality 

episodes require a response that mitigates impacts from air pollution sources in a manner that 

balances the health benefits from reducing the use of wood heaters with the potential negative 

health and safety impacts from a lack of supplemental or primary wood heat during extreme cold 

periods. Given the community concerns about the reasonableness of requiring residents to cease 

use of solid fuel-fired heating devices during periods of extreme cold, the state regulations would 

focus on ensuring that heating units can only be used during periods of poor air quality if they 

are operated in a clean and efficient manner. When operated properly, solid-fuel fired heating 

devices emit little or no smoke. Efficient operation not only reduces air pollution but allows for 

the burning of less wood, an economic or time savings to residents who buy or cut wood. 

ADEC will use the following approaches to notify the public of requirements and address any 

compliance issues. The public will be notified of an air quality advisories (alert and episode) that 

has specific opacity level requirements utilizing several outreach methods. All episode 

announcements are emailed to ADEC’s up-to-date distribution list. This distribution list contains 

all local media outlets (radio, TV), the FNSB Air Quality Program Staff, elected officials, and 

anyone who signs up for electronic notices. ADEC has online sign-up capabilities for various 

electronic notices and alerts through its Air Online Services accessible through the Division of 

Air Quality’s home page at: http://dec.alaska.gov/air. In addition to these electronic emailed 

announcements, all advisories are posted to the Division’s Air Quality Advisories web page at: 

http://dec.alaska.gov/Applications/Air/airtoolsweb/Advisories/, which includes the actual 

advisory, the start and end dates, the area, and status (expired, active) of the advisory. ADEC 

will also post advisories on its Burn Wise Alaska face book page as well as the department’s 

Twitter account. 

In addition to providing notification when the opacity requirements are in effect, the department 

plans to provide on-going public information on the opacity requirements and ways that residents 

can comply. Difficulty meeting opacity could be due to wet wood. Under state regulation, 

residents are required to use dry wood during winter months. Under Borough code, residents are 

required to use dry wood year round.13 Residents will be directed to those wood sellers 

participating in the voluntary Moisture Disclosure Program where wood sellers either disclose 

the moisture content of purchased wood or agree to provide dry wood. Brochures on proper 

maintenance and operation of a solid-fuel fired device will also be available. To the extent that 

ADEC resources allow, staff can assist residents who request help in determining in advance of 

episode conditions whether their typical burning operations meet the opacity levels outlined in 

this plan.

 13 Fairbanks North Star Borough Assembly Ordinance No. 2015-01, February 27, 2015
Adopted September 7th, 2016

III.D.5.7-14

If a resident is found to be out of compliance with the visible emission levels identified for a 

specific episode, ADEC is responsible for taking actions to enforce the requirement. The 

department’s compliance activities are conducted using the tools and authorities provided under 

the state statutes. The Division of Air Quality does not have statutory authority to issues 

administrative penalties for violations of Alaska environmental law. This means that ADEC staff 

cannot simply write “tickets” to individuals that are found to be violating the opacity levels. All 

compliance and enforcement activities are case specific, however, ADEC generally initiates 

compliance activities in response to complaints received that indicate the potential for violations 

of a state regulation. ADEC staff investigate complaints to verify or corroborate a problem or 

violation of a state requirement.

In most cases, the department finds that compliance can be achieved through assistance to 

businesses and individuals in understanding the regulatory requirements and how they can 

comply. In the case of problem burners failing to meet these opacity levels during air quality 

episodes, it is important to bring a unit into compliance quickly to reduce smoke and assist in 

bringing levels of PM2.5 into compliance in the local area. As a result, if a resident working with 

or without the assistance of ADEC staff is unable to bring a unit into compliance within a 

reasonable period, AQ staff would request that the resident stop burning for the duration of the 

air quality episode unless it is the sole source of heat for the structure. In the event that 

compliance assistance is not successful in resolving a recurring smoke concern at a specific 

residence or business, the department staff may use additional administrative enforcement tools, 

such as nuisance abatement orders, to address the concern. Understanding that there may be 

residents in the community for which wood burning is essential and routine difficulties 

complying with the requirement may be discovered, the department has also included in the 

regulation a provision for a temporary waiver for situations where the owner/operator of a woodfired heating unit demonstrates financial hardship or technical feasibility issues in meeting the 

opacity requirements. The agency must consider the mitigation measures implemented, the 

proximity of the device to sensitive locations such as hospitals, day care centers, schools, clinics, 

and senior centers, as well the contribution of the device to the exceedance of the PM2.5 

concentration triggering the episode announcement before granting such a waiver.

5.7.2.5 AHFC Energy Programs

The Alaska Housing Finance Corporation (AHFC) implements several energy programs that are 

designed to make homes more energy efficient. As homeowners make energy efficiency 

improvements they reduce the amount of fuel and electricity needed for power and heat leading 

to corresponding air quality benefits due to the reduced fuels being burned for space heating and 

power generation. Information on AHFC energy programs is available on the internet at: 

www.ahfc.us/efficiency/energy-programs/

Under the AHFC Home Energy Rebate Program, home owners may receive up to $10,000 for 

making energy-efficient improvements to their existing home based on before and after energy 

ratings made by Energy Raters. Homeowners must get an initial energy rating and apply for the 

program. Eighteen months is provided to complete improvements with a second energy rating 

after the improvements are done. Homeowners are reimbursed (up to a specified amount) for the 
Adopted September 7th, 2016

III.D.5.7-15

energy ratings and receive a rebate based on their home’s improved energy-efficiency and 

eligible receipts. Only those improvements recommended by the rater are eligible for the rebate. 

There is also a Home Rebate program that provides a $10,000 rebate for 6 Star homes and 

$7,000 for 5 Star Plus homes (the highest AHFC energy rating categories). In addition, AHFC 

offers interest rate reductions when individuals finance new or existing energy efficient homes or 

when borrowers purchase and make energy improvements to an existing home. Any property 

that can be energy rated and is otherwise eligible for AHFC financing may qualify for the energy 

efficiency interest rate reduction program.

Individuals who meet income limits are eligible to apply for the AHFC Weatherization 

Assistance Program. Local weatherization providers provide program services at no cost to 

qualified homeowners and renters including single and multifamily homes, mobile homes, 

apartments, and condominiums. The Weatherization Assistance Program provides low and 

moderate income households with improvements to their homes which increase the energy 

efficiency of their dwelling, including measures such as:

• Air sealing attics, crawlspaces, etc.

• Insulating and weather stripping

• Repair and replacement of heating systems

• Replacement of doors and windows

• Installation of fans, smoke alarms, CO detectors

5.7.2.6 Expanded Availability and Use of Natural Gas

Key to reducing fine particulate matter air pollution in the long term is expanding the availability 

of affordable, cleaner burning fuel options within the nonattainment area. The Interior Energy 

Project provides the financial tools needed to bring natural gas to the Fairbanks and North Pole 

area. The project was established through Senate Bill 23 which passed the Alaska Legislature 

unanimously in April 2013. The legislation authorizes the Alaska Industrial Development and 

Export Authority (AIDEA) to provide the financing package to partner with the private sector to 

build a liquefied natural gas (LNG) plant on the North Slope and natural gas heating distribution 

system in Fairbanks and North Pole. The current projections indicate that the earliest this project 

will provide additional natural gas into the community is 2016. As a result of this timing, the 

project will not provide certainty of meaningful emission reductions in the short term prior to the 

2015 moderate area attainment date but it will provide significant emission benefits between 

2015 and 2019. Further discussion of this program is included in the contingency measure 

section of this plan (Section 5.10).

5.7.2.7 Transportation Control Strategies

5.7.2.7.1 Expanded Availability of Plug-Ins 

Engine preheaters are used extensively throughout Fairbanks when ambient temperatures drop 

below 0° F to ensure that vehicles exposed to these temperatures can be easily started. Local 

testing programs have confirmed that preheating vehicles, a practice commonly referred to as 
Adopted September 7th, 2016

III.D.5.7-16

“plugging-in,” provides a substantial reduction in motor vehicle cold start emissions. 

Recognizing the many benefits of plugging-in (e.g., reduced emissions, lower need for 

maintenance, fuel economy, startability, etc.), the Borough has a long-standing practice of 

expanding the number of parking spaces equipped with electrical outlets. This has been 

achieved by securing funds for retrofitting existing facilities (e.g., school renovations) and 

including outlets in new public facilities (e.g., the construction of new schools). It has also been 

achieved by encouraging the private sector to retrofit existing facilities (e.g., hospital 

expansions) and including outlets in new private facilities (e.g., Home Depot). This strategy was 

made more viable with Congress’ passage of the Transportation Equity Act for the 21st Century 

that removed the restriction on the use of Congestion, Mitigation and Air Quality (CMAQ) funds 

for the Section 108(f) transportation control measure (xii) that reduces motor vehicle emissions 

under extreme cold start conditions.

In support of their previous carbon monoxide attainment plan, the Borough conducted a survey 

of employee parking lots,i public and private, located within the nonattainment area that were 

thought to have more than 100 parking spaces. The results of that survey are presented in Table 

5.7-4. It shows that slightly more than 90% of employee parking lot spaces were equipped with 

electrical outlets in 2001. Employee parking spaces tend to have vehicles parked for longer 

durations resulting in greater cold start motor vehicle emissions than visiting vehicles which are 

often parked for short durations. 

While many of the Borough parking lots have been upgraded with plug-in infrastructure in the 

past, the Borough has secured CMAQ funds from the Federal Highway Administration (FHWA) 

to continue the program of retrofitting public parking lots located in the nonattainment area with 

electrical outlets. As shown in Table 5.7-5, several projects have been completed, or are 

scheduled for completion, between 2008 and 2015:

Table 5.7-4

Summary of Employee Parking Spaces Equipped with Plug-Ins 

in the Fairbanks CO Nonattainment Area

Spaces Plug-Ins % Equipped

Government Summary

FNSB 2,345* 2,170 93

Federal 1,948 1,928 99

State 971 937 96

City 485** 446 92**

Subtotal 5,749 5,481 95

Schools Not in CO Nonattainment Area (are within PM2.5 area)

Badger Road Elementary 63 63 100

Pearl Creek Elementary 62 42 68

Ticasuk Brow Elementary 48 48 100

Weller Elementary 40 40 100

Subtotal 213 193 91
Adopted September 7th, 2016

III.D.5.7-17

CO Nonattainment Area Government 

Total 5,536 5,288 96

Private Summary

Lots with >250 plug-ins 2,438 2,318 95

Lots with <250 plug-ins 1,753 1,427 81

Subtotal 4,191 3,745 89

Nonattainment Area Government and 

Private Total 9,727 9,033 93

* Includes initial retrofit of employer parking of Lathrop High School.

** The City Manager could not provide an estimate of the total spaces. Therefore, an estimate was prepared by 

assuming that the City fraction equipped was the same as the Borough employee fraction (i.e., 92%).

Table 5.7-5

Fairbanks Nonattainment Area 

Additional Parking Lots Equipped with New Plug-Ins

2008-2015

Facility New Plug-Ins Comments

West Valley High School 268 Project completed in 2013

North Pole High School 274 Project completed in 2013

Carlson Center 600 Project Timeframe 2015-2019

Big Dipper Ice Arena 300 Project Timeframe 2015-2019

North Pole Library 25 Project Timeframe 2015-2019

Fairbanks Library 50 Project Timeframe 2015-2019

Total 1517

In addition to the Borough’s emphasis on the installation of electrical infrastructure in parking 

lots, the Assembly passed an ordinanceii on April 12, 2001, that requires employers or businesses 

that have 275 or more parking spaces to provide power to electrical outlets at temperatures of 20 

degrees F or lower. This ordinance is included in Appendix III.D.5.7 Key provisions addressed 

in the ordinance include:

• Parking lot owners are required to supply electricity to outlets between November 1 of each 

year and March 31 of the subsequent year. 

• Power to parking lots may be cycled on and off every other hour during days when 

temperatures fall below 21o F.

• Employers or businesses subject to the ordinance are required to keep a logbook that 

documents the days on which power is supplied to electrical outlets. The logbooks are 
Adopted September 7th, 2016

III.D.5.7-18

required to note special circumstances that prevented the supply of electricity to outlets. The 

logbooks need to be maintained and available for inspection for a five-year period.

• Employers and businesses subject to the ordinance must provide outlets for any new parking 

spaces intended for use by a motorist for longer than two hours.

• Employers or businesses subject to the ordinance must maintain electrical outlets in operable 

condition and they cannot decrease the number of parking spaces with outlets without prior 

approval of the Borough.

• The Borough can institute a civil action and obtain penalties not to exceed one thousand 

dollars for each violation.

To ensure the effectiveness of the ordinance, the Borough developed policies and procedures to 

govern its implementation, key elements include:

• Maintaining a list of parking lots with plug-ins that are subject to the program.

• Conducting surveys at least twice each winter on days when temperatures are below 20o F to 

determine whether outlets have power.

• Conducting surveys at least twice each winter to determine the number of vehicles that are 

plugged in at each of the parking lots subject to the ordinance.

• Maintaining records of the surveys and making that information along with data on the 

number of parking spaces equipped with plug-ins available to the public.

• Using the results of the surveys to determine the level of plug-in usage and related emissions 

benefits on an annual basis and making that information available to the public. 

Since plug-ins are used extensively in the Borough when temperatures fall below 0o F, the 

principal benefit of the ordinance is to ensure that power is available at temperatures betweeen 0 

and +20o F. The Borough has conducted surveys in the past to determine if outlets have power 

each winter since the ordinance was implemented. The results, which are available at the 

Borough Air Quality Management Program Offices, show that employers have a high level of 

compliance with the ordinance.

Public education is an important part of this control strategy. The Borough encourages residents 

to plug in their vehicles at temperatures up to 20o above zero. Engine block heaters are 

considered an essential component of winter driving in Fairbanks. It is estimated that a 

significant number of vehicles will not start at temperatures of 20o below zero. Since –20o or 

colder temperatures are a frequent occurrence in winter, it was assumed that by encouraging 

motor vehicle operators to plug in at warmer temperatures, carbon monoxide and PM2.5

emissions would be reduced without creating an onerous burden on residents, as they already 

have engine block heaters. Subsequent test programs conducted by ADEC and the Borough 

confirmed the emission benefits of plugging-in at warmer temperatures. Television spots were 

produced to inform the public of the multiple benefits of plugging in at warmer temperatures. 

Although not scientific in nature, the messages were that plugging in: 
Adopted September 7th, 2016

III.D.5.7-19

1. Reduces engine wear, thus reducing vehicle maintenance costs;

2. Keeps the air pure and improves air quality;

3. Improves chances of complying with the federal Clean Air Act; and

4. Improves vehicle starting and reduces the idling time needed before driving. 

Based on its historical success in implementing the plug-in program, the Borough continues 

public awareness as part of it implementation of an ordinance that requires owners of parking 

lots to provide power to electrical outlets for plug-ins at temperatures below 20oF. 

5.7.2.7.2 Mass Transit System 

The Borough Transportation Department operates a transit program called the Metropolitan Area 

Commuter System (MACS). The Borough began operating the MACS fixed route transit service 

in 1977. The MACS system is comprised of nine fixed routes in the cities of Fairbanks and 

North Pole, as well as other nearby communities. MACS service operates Monday through 

Friday from 6:00 AM to 9:45 PM and limited routes on Saturday from 8:45 AM to 7:45 PM. 

There is no Sunday service.

The Borough also operates a door-to-door paratransit service, VanTran, which began in 1988. 

The American Disabilities Act of 1990 (ADA) requires all public transit systems that provide 

fixed route bus and rail service to also provide an alternative transportation service (usually vans 

and small buses) for people with disabilities who cannot use fixed route bus and train service. 

This service is usually called “paratransit.” The Van Tran service operates up to five ninepassenger vans and gives priority to ADA-certified disabled passengers within a 3⁄4-mile zone 

around all MACS fixed routes, although will travel beyond the 3⁄4-mile buffer on occasion.

The vanpool system was updated in 2014 with a new approach to make it a successful operation.

Transit program ridership levels are presented in Table 5.7-6:

Table 5.7-6

Annual MACS Transit Ridership

2008 – 2013

Year MACS Number of Riders

2008 294,142

2009 357,964

2010 383,773

2011 391,799

2012 428,166

2013 475,875

The MACS Transit system has seen increased ridership over the last 6 years, and is projected to 

continue this trend through 2014, which is expected to exceed 500,000. The ridership 

information above shows the increase in ridership over that time period. In addition, the MACS 

Transit system has expanded in the last few years to include improved frequency on high 

ridership routes, and a new route serving Fort Wainwright. Other notable improvements include 
Adopted September 7th, 2016

III.D.5.7-20

better bus stop facilities (bus stop signs and shelters) and a bus tracking system for the public. 

The FNSB intends to build more shelters with additional funding as it becomes available. The 

Borough also conducts active public outreach and education to encourage the use of mass transit.

5.7.2.7.3 DOT Anti-Idling and Diesel Emission Reductions

Within the transportation sector, heavy duty diesel activities are a source of PM2.5 in the FNSB. 

Emissions from vehicles are directly related to the amount of fuel used and the rate at which it is 

used. By reducing the need to have the vehicle engine on, emission reductions are achieved. 

This is directly related to reduction in fuel use resulting from how often the vehicle is left shut 

off versus left idling. In cold climates, it is often necessary to leave diesel vehicles idling to 

avoid performance issues. Anti-idling (idle reduction) technologies provide a means to reduce 

air pollution from transportation sources.

In July 2011, the Alaska Department of Transportation & Public Facilities (DOT&PF) began 

focusing on anti-idling and its potential benefits statewide. DOT&PF’s State Equipment Fleet 

(SEF) and Maintenance & Operations (M&O) staff came together to formulate a long term plan 

for fleet management and to address on-going budget challenges. Implementation of an anti-idle

policy was one of the top picks for optimizing resources and reducing costs. In November 2011, 

an M&O Directive was put in place to reduce idling to 10 minutes and heavy duty engines were 

set to turn off automatically at 10 minutes. The focus of the DOT&PF program was on large 

dump trucks and tractors where idle time was averaging over 30%. During a fleet optimization 

study, anti-idle was noted to be a way to save thousands of dollars (potentially millions of 

dollars) on fuel and preventative maintenance and DOT&PF began moving forward with a more 

visible anti-idling campaign within the department. According to the DOT&PF, reducing idling 

saves money, conserves fuel, reduces engine wear and maintenance, extends the life of heavy 

equipment, and helps to preserve the environment. DOT&PF is working to get the message out 

to every single DOT&PF employee that drives a state provided vehicle through a broad, 

consistent, and informative internal messaging campaign.

Building off of the DOT&PF’s efforts to reduce idling, the ADEC and DOT&PF have developed 

a Fairbanks specific CMAQ-funded pilot program intended to reduce heavy duty diesel 

emissions in the nonattainment area through anti-idling, maintenance, and other emission 

reduction opportunities. The focus of the program is to expand the use of auxiliary heaters to 

reduce idle time thereby reducing emissions and providing an associated cost saving due to less 

use of diesel fuel. The program has the following elements:

1. Provide support for the existing DOT&PF anti-idling pilot project currently underway in 

Fairbanks by assisting with telemetric purchase and installation, installation of additional 

heaters, and assisting with education and training. With assistance from this program, the 

DOT&PF pilot program will be fully functional and will be able to provide additional 

information to assist in expanding anti-idling to others.

2. Expand anti-idling to other heavy duty vehicles within the FNSB nonattainment area; 

state fleets, local government fleets, private fleets, and commercial fleets. This includes 

working with the heavy duty fleet owners by providing education materials and training, 
Adopted September 7th, 2016

III.D.5.7-21

contracting for installations of auxiliary heaters, and providing incentives for 

participation including purchasing of heaters and auxiliary equipment. 

3. During installation of program auxiliary heaters, conduct an inspection of the vehicle to 

identify where additional emission reduction possibilities could be implemented – such as 

maintenance (filter, tune-up), if vehicle is a candidate for retrofit technologies or 

repower, and/or candidate for additional emission reduction equipment (particulate matter 

traps). Partnership and incentive opportunities with vehicle fleet owners will be explored 

to further emission reduction benefits while a vehicle is in shop. 

This pilot program is intended to develop into an on-going program with respect to new 

installation of heaters and emission reduction equipment on diesel equipment within the 

nonattainment area. Overall operations and maintenance of the new equipment will be the 

responsibility of fleet owners. Original startup costs for new fleets (new installation of heaters, 

initial maintenance, or initial retrofits, additional emission reduction technologies) coming into 

the program are intended to be covered entirely or in part through the use of CMAQ funds. Once 

initiated, future installations within a fleet would be limited to actual heater installations and/or 

telemetrics only. 

Project funds would be provided for first time installations only, not for replacement of worn out 

heaters. The cost of a single auxiliary heater installation is approximately $3500. Conservative 

estimates indicate auxiliary heaters may save 30% in fuel costs alone along with a 30% reduction 

in emissions. The cost of the fuel alone, would easily pay for any future replacement of the 

auxiliary heater and software. The life of the auxiliary heaters is more than ten years, so 

continued anti-idling use will provide benefits (emission reductions and fuel savings) for the life 

of the equipment. 

5.7.2.7.4 ADEC Diesel Emission Reduction Efforts

ADEC has utilized American Recovery and Reinvestment Act of 2009 (ARRA) and Diesel 

Emission Reduction Act of 2005 (DERA) funding to reduce emissions in the non-attainment area 

through several projects.

A 2009 ARRA funded project allowed DOT&PF to replace three 1985 Autocar KM64 trucks 

with three 2010 International 7600SFA Workstar 8 cy dump trucks equipped with snow plows 

and belly blades. The new vehicles meet the 2010 clean diesel requirements and are equipped 

with EGR and DPF technology resulting in lowered diesel emissions. The three trucks began 

service in August of 2010 and the three older engines were rendered inoperable. The 2009 

ARRA Locomotive Overhauls with Emissions Upgrades project purchased and installed 

emissions upgrade kits and automatic engine start-stop technology on two engines operated by 

the Alaska Railroad Corporation. The upgraded engines meet the Tier 0+ emissions 

requirements. These engines operate throughout the Alaska Railroad Corporation (ARRC) track 

system including within the nonattainment area.

In 2013, DEC partnered with DOT&PF using DERA grant funding to retrofit 23 diesel vehicles 

with anti-idling technology (as described above). The direct-fired heaters allow operators to 

maintain warm cabin conditions in cold conditions without idling the main engines. Reduction 
Adopted September 7th, 2016

III.D.5.7-22

in idle time was estimated to be 4,020 hours per year with a savings of 3,015 to 4,820 gallons of 

diesel fuel assuming an estimated 0.75-1.2 gallons of fuel consumed per hour of idling. The 

DERA program was extended through 2016 in 2010 and if funding continues, future projects

may also implement clean diesel technology in the nonattainment area.

5.7.2.7.5 Federal Diesel Emission Reduction Programs

The federal government has multiple regulations and initiatives that will help address emissions 

in the non-attainment area. EPA’s National Clean Diesel Campaign works with manufacturers, 

fleet operators, air quality professionals, environmental and community organizations, and state 

and local officials to reduce diesel emissions. The National Clean Diesel Campaign offers 

Diesel Emission Reduction Act funding opportunities through the competitive National Clean 

Diesel Funding Assistance Program to fund retrofit projects using Smartway verified diesel 

emission reduction technologies and the non-competitive State Clean Diesel Grant Program that 

funds grant and loan projects for clean diesel projects. Smartway is a public-private initiative 

between EPA, large and small trucking companies, rail carriers, logistics companies, commercial 

manufacturers, retailers, and other federal and state agencies. Its purpose is to improve fuel 

efficiency and the environmental performance (reduction of both greenhouse gas emissions and 

air pollution) of the goods movement supply chains. Smartway evaluates emissions control 

technologies and determines the eligibility of individual technologies for funding under DERA 

grants. Federal emissions standards for exhaust and evaporative emissions exist for Light-Duty 

Vehicles, Trucks, and Motorcycles, Heavy-Duty Engines and Vehicles, and Non-road Engines 

and Vehicles. These emissions standards on manufacturers have incrementally reduced the 

amount of emissions permitted from each type of regulated engine, resulting in cleaner diesel 

engines. Phase 3 emissions standards will take effect starting in 2017.

5.7.2.7.6 Federal Motor Vehicle Control Program

The Federal Motor Vehicle Control Program (FMVCP) is the federal certification program that 

requires all new cars sold in 49 states to meet certain emission standards. (California is excluded 

because it has its own state-mandated certification program.) These standards vary according to 

vehicle age, with the newer vehicles required to be considerably cleaner than older models. The 

result of more stringent emission standards over time from newly manufactured vehicles results 

in a drop in overall emissions from the vehicle fleet in Fairbanks, as older, dirtier vehicles are 

replaced with newer, cleaner vehicles. Carbon monoxide cold temperature (down to +20° F) 

emission standards phased in between 1994 and 1996 for passenger cars and light duty trucks 

significantly enhanced control system performance for all pollutants at the temperatures 

associated with cold climate exceedances. 

Tier 2 emission standards for passenger cars, light trucks and larger passenger vehicles are 

focused on reducing emissions most responsible for ozone and particulate matter (i.e., nitrogen 

oxide or NOx and hydrocarbon or HC emissions). Mandated reductions in the sulfur content of 

gasoline further enhanced the performance of motor vehicle emission control systems. Starting 

in 2017, Tier 3 will further reduce both tailpipe and evaporative emissions from passenger cars, 

light-duty trucks, medium-duty passenger vehicles, and some heavy-duty vehicles. Additional 

reductions in gasoline sulfur will make emission control systems more effective for both existing 
Adopted September 7th, 2016

III.D.5.7-23

and new vehicles, and enable more stringent vehicle emissions standards. EPA’s MOVES model 

has been used to assess the benefits of the FMCVP and Tier 2 emission standards. Insufficient 

time has been available to use the recently released MOVES2014 to incorporate the benefits of 

Tier 3 controls on the motor vehicle emissions in the SIP. Subsequent inventory analysis will be 

based on MOVES2014 and subsequent available releases of the model. 

5.7.2.8 Open Burning

5.7.2.8.1 Winter Season Open Burning Ban

Since the 1970s the Fairbanks North Star Borough had an ordinance to restrict wintertime open 

burning. In 2013, the Borough Assembly repealed that ordinance in response to a voter initiative

that restricted the Borough's authorities to regulate burning. As a result, to ensure that smoke 

emissions from open burning did not increase in the future, ADEC revised its regulations. 

ADEC implements open burning regulations found in 18 AAC 50.065. Within the existing 

regulations (18 AAC 50.065(e)), ADEC can and does prohibit open burning in an area during an 

air quality advisory (see 18 AAC 50.245). 

To further strengthen this requirement inside the nonattainment area by reducing confusion on 

whether open burning is permitted on a given day and ensuring greater compliance and less 

smoke emissions in the airshed, ADEC revised 18 AAC 50.065(f) to prohibit open burning 

during the winter season between November 1 and March 31. A copy of the state open burning 

regulation, 18 AAC 50.065 is included in Appendix III.D.5.7.

In response to public comments on the 2014 regulation revision, ADEC considered a longer 

season for open burning restrictions. In analyzing the data available, ADEC found that in the 

months of October and April conditions have not shown a prevalence for significant air quality 

deterioration as a result of normal open burning. As a result, ADEC did not lengthen the 

seasonal restriction on open burning to include those two months. Problem open burns during 

these “shoulder seasons” can typically be addressed through the use of the Department’s other 

open burning and air pollution regulations. Concerns raised by the public related to the potential 

for the proposed regulations to prohibit small winter fires for recreational warming and 

ceremonial purposes were addressed through revisions to the definition of open burning that 

would exclude these small fires from the prohibition. The department also provided the 

flexibility for a local air program to institute an open burn permit program in lieu of the seasonal 

restriction, if they demonstrate the program will not cause or contribute to violations of the PM2.5

ambient air quality standards and the program has been adopted into the State Implementation 

Plan for the area. It should be noted, that this flexibility does not grant the local air program any 

authorities not provided to it by its citizens. In recent years, the Borough has not had the 

authority to establish a program in place of the department’s seasonal restriction. 

5.7.2.9 ADEC Stationary Source Program 

The CAA section 172 (c) requirements for nonattainment areas apply to the PM2.5 nonattainment

area. Under this attainment plan, the requirements of CAA Part D, New Source Review (NSR) 

apply for major stationary sources. Section 302 of the CAA (42 U.S. C. 7602) defines a major 
Adopted September 7th, 2016

III.D.5.7-24

stationary source as any stationary facility or source of air pollutants that directly emits, or has 

the potential to emit, 100 tons per year of any pollutant. Permits for construction and operation 

of new or modified major stationary sources within the nonattainment area must be approved 

through the NSR program. Within the FNSB, ADEC is responsible for issuing construction and 

Title V operating permits. ADEC has incorporated the requirements for Prevention of 

Significant Deterioation (PSD) and nonattainment New Source Review in 18 AAC 50, Article 3. 

ADEC actively implements its permit programs. The Air Quality Division issues and amends 

permits, conducts inspections, reviews reports from industry, provides compliance assistance, 

and takes enforcement actions when needed.

Each stationary source in the nonattainment area was the subject of a Reasonably Achievable 

Control Technology (RACT) analysis. The results of that analysis are found in Appendix 

III.D.5.7. The emission units for which RACT determinations were made include boilers, 

process heaters, and turbines. The direct PM2.5 RACT is a fabric filter system for boilers. 

Additional PM2.5 controls are considered unreasonable for process heaters and turbines. RACT 

for SO2 emissions is the use of current fuel for all of the fuel combustion sources. RACT 

controls were not recommended for NOx because control of NOx is not an efficient or cost 

effective method for reducing ambient PM2.5 in Fairbanks.

All of the emission units that were reviewed are already implementing the emission control 

techniques identified as RACT. All of the coal-fired units are already equipped with fabric 

filters, and Alaskan coal has a very low sulfur content. The costs associated with switching from 

high- to low-sulfur liquid fuels were too high to be deemed to be source specific RACT for those 

sources currently using liquid fuels.

Stationary source emissions in the nonattainment area have been modeled in the attainment 

demonstration at “potential to emit” levels from their existing air quality permits. Additionally, 

historical actual emissions were modeled to determine impacts during the baseline period and 

were projected to 2015 to provide a potential lower bound on stationary source impacts. This is 

discussed further in the Modeling and Weight of Evidence Section (5.8). 

5.7.2.10 Calculating the Benefits of Control Measures

Calculation of emission benefits for key control measures are summarized within Section 5.6 and 

are discussed in detail in Appendix III.D.5.6. Generally speaking, emission benefits were 

calculated for those measures for which up-to-date, quantitative program activity data were 

available. Programs/measures for which data were not readily available were excluded from the 

quantitative emission benefits calculations but were collectively accounted for with credits given 

to voluntary measures. (Section 5.8 discussed how voluntary measures and their allowed credits 

were accounted for in the attainment modeling in accordance with EPA guidance.)

Table 5.7-7 summarizes how each of the control measures discussed earlier in this section were 

accounted for within the SIP. Check marks in the “Voluntary Measure” column identify those 

measures for which benefits were not individually quantified, but for which collective voluntary 

program credits were assigned in the attainment modeling. The “Quantified Benefits” column 

identified those remaining measures for which emission benefits were individually quantified in 
Adopted September 7th, 2016

III.D.5.7-25

the emissions inventory. The latter two columns identify the location in inventory where the 

measure benefits were applied. “Baseline” refers to measures whose benefits were accounted for 

within the Baseline or Projected Baseline inventory. “Control” indicates those measures for 

which benefits were applied in the Control inventories, reflecting emission reductions from 

measures being adopted or expected to occur. (Within the inventory discussion in Section 5.6, 

only benefits for the measures under the Control column were explicitly reported. Benefits for 

those measures accounted for in the Baseline and Projected Baseline inventories, though 

quantified, were not individually reported in Section 5.6, but were included in the overall 

estimates of Baseline and Projected Baseline emissions.)

Table 5.7-7

Control Measures for Which Emission Benefits were Quantified

Control Measure/Program

Voluntary 

Measure

Quantified 

Benefits

Location in Inventory

Baseline Control

(year)

Space Heating and Solid Fuel Heating Controls

Solid-Fuel Fired Heating Device Upgrades and 

Emission Standards  (2015)

Improving Solid-Fuel Device Operations 

Encouraging Reduced Use of Solid Fuel 

Heating During Air Pollution Episodes 

AHFC Energy Programs  

Expanded Availability and Use of Natural Gas  (2019)

Transportation Control Strategies

Expanded Availability of Plug-Ins 

Mass Transit System 

DOT Anti-Idling and Diesel Emission 

Reductions 

ADEC Diesel Emission Reduction Efforts 

Federal Diesel Emission Reduction Programs  

Federal Motor Vehicle Control Program  

Open Burning

Winter Season Open Burning Ban  

Point Sources

RACT (Appendix III.D.5.7) 

Regardless of how emission reductions are credited within the planning framework, all measures 

that reduce PM2.5 from local sources are helpful in achieving the overall goal of bringing the area 

into attainment of the NAAQS.

5.7.2.11 Future Re-Evaluation of Control Strategies

The FNSB and ADEC recognize that in the long term the mix of PM2.5 control strategies 

implemented in Fairbanks could warrant revision. This would be accomplished through a future 

attainment or maintenance plan revision and subject to approval by EPA. Given the analyses of 
Adopted September 7th, 2016

III.D.5.7-26

PM2.5 emissions and PM2.5 air monitoring data in this attainment plan, the agencies commit to reevaluating the entire mix of control measures as early as 2016, following the 2015 attainment 

deadline, to determine whether the measures have succeeded as planned in reducing emissions 

and improving air quality. This evaluation could result in measures being removed or added to 

the plan depending on the outcome of the analyses prepared at that time. All changes to the air 

quality plan must be approved by EPA.

i Spreadsheet of Parking Spaces Equipped with Plug-ins, transmitted from Leah Bobick to Bob 

Dulla of Sierra Research, dated April 9, 2001.

ii Ordinance No. 2001-17, “An Ordinance Mandating a Fairbanks North Star Borough Motor 

Vehicle Plug-in Program.” 

 
ALASKA DEPARTMENT OF

ENVIRONMENTAL CONSERVATION

Amendments to:

State Air Quality Control Plan

Vol. II: III.D.5.11

Fairbanks Emergency Episode Plan

Adopted

September 7th, 2016

Bill Walker, Governor 

Larry Hartig, Commissioner
Adopted September 7, 2016

III.D.5.11-2

5.11. Fairbanks Emergency Episode Plan

Section 127(a) of the 1990 Clean Air Act Amendments (CAAA) requires all SIPs to include 

measures providing public notification of instances or areas in which any NAAQS is exceeded, 

and of the health hazards associated with such pollution. EPA previously issued guidance on the 

adoption of emergency episode plans designed to keep air pollution concentrations below those 

levels considered to have adverse consequences on human health. 

5.11.1. Forecasting PM2.5 Air Quality Episodes

The Fairbanks North Star Borough (FNSB) provides daily air quality forecasts using EPA’s Air 

Quality Index (AQI) on its web site at http://co.fairbanks.ak.us/airquality/. The Borough posts 

separate AQI forecasts for Fairbanks and North Pole. The forecasts are based on PM2.5 data 

collected from the ambient monitoring/meteorological reporting network and supplemented by a 

predictive model developed specifically for the purpose of forecasting PM2.5 events in the 

community. 

The AQI is an index for reporting daily air quality. It provides information on how clean or 

polluted the air is, what associated health effects may be of concern, and actions to take to reduce 

exposure and health impacts. The AQI provides six categories that correspond to a different 

level of health concern: 

• Good – Air quality is satisfactory and poses little or no health risk.

• Moderate – Air quality is acceptable; however, pollution may pose a moderate healtth 

concern for a very small number of individuals.

• Unhealthy to Sensitive Groups – Members of sensitive groups (like elderly, children, 

those with heart or lung disease) may experience health effects, but the general public is 

unlikely to be affected.

• Unhealthy – Everyone may begin to experience health effects. Members of sensitive 

groups may experience more serious health effects.

• Very Unhealthy – Everyone may experience more serious health effects.

• Hazardous – The entire population is even more likely to be affected by serious health 

effects.

To support this function, FNSB uses an air quality forecasting tool called the AQ Alert Model 

that projects PM2.5 concentrations over a four day window (the remainder of today, tomorrow, 

and the following two days). The model outputs include the predicted values for PM2.5

concentrations (rolling 8-hour averages and 24-hour daily averages) at each monitor site over the 

next four days along with the weather conditions forecast by National Weather Service (NWS) as 

context for understanding the PM2.5 predictions. To accomplish this, the model accesses in nearreal time a wide range of data on recent PM2.5 concentrations and meteorological conditions at 

the monitor sites, surface observations and upper air soundings taken at the Fairbanks airport, 

and forecasts of surface and upper air conditions from the Global Forecast System (GFS)

weather prediction model operated by the National Weather Service. These data are combined 

within the model to drive a statistical representation of the relationship between meteorological 

conditions and ambient PM2.5 concentrations. The statistical model is based on a detailed 
Adopted September 7, 2016

III.D.5.11-3

analysis of data from the FNSB area and is updated annually to account for changes in consumer 

behavior that influence PM2.5 concentrations. FNSB recently completed an assessment of the 

model’s performance in the 2013-2014 winter and found that 88 percent of the time it correctly 

predicted whether an exceedance would occur on the following day. 

Air quality specialists at FNSB use the model during the day to monitor changing air quality 

conditions at the monitors. Forecasts of future PM2.5 levels can be generated at any time but are 

normally prepared in the hour preceding 5 pm local time. Air quality specialists use the modeled 

forecasts as one input to the decision-making process for issuing an air quality advisory. Other 

inputs are the afternoon forecast of dispersion conditions issued by the NWS forecasting office in 

Fairbanks and the assessment by FNSB personnel of many factors based on their long-standing 

experience in observing air quality in Fairbanks, including the rate of change in concentrations at 

the monitors and the location and movement of weather fronts seen in satellite photos.

5.11.2. Borough Episode Program

In June 2010, the FNSB Assembly adopted revisions to the Borough’s Code to establish the local

PM2.5 Air Quality Control Program in Chapter 8.21.1

 A copy of this ordinance, 2010-28, is 

included in Appendix III.D.5.12. The PM2.5 Air Quality Control Program chapter has undergone 

significant changes beginning in 2015. Ordinances modifying the chapter include 2015-01, 

2015-18, 2015-29, 2015-73, 2016-21, 2016-37, and 2016-20-1A.

2,3,4,5,6,7,8 Ordinance 2016-30

renumbered and reorganized Borough Code, resulting in the relocation of the PM2.5 Air Quality 

Control Program chapter from Title 8 Chapter 21 to Title 21 Chapter 28.

9 The Borough 

ordinances that have been adopted following the adoption of the Fairbanks moderate plan have 

been inserted into Appendix III.D.5.12 – Assurance of Adequacy.

Borough code, 21.28.050, requires the Borough to issue daily weekday PM2.5 forecasts during 

the winter months of October through March before 4:30 pm. Air quality staff evaluate hourly 

and 24-hour average air quality monitoring and meteorological data when making forecasts. If 

the PM2.5 concentration has exceeded the threshold for an advisory or alert and is forecasted to 

remain at that level for 12 hours or more, then the Borough declares an air advisory or alert. 

Advisories and alerts implement a multi-staged episode program that progressively restricts 

different classes of devices based on the severity of the forecasted air quality conditions. The 

episode program does not affect the whole nonattainment area, only the Borough’s ‘Air Quality 

Control Zone’ which encompasses the State’s Fairbanks and North Pole zones but excludes the 

Goldtream zone. Advisories and alerts can apply to the whole ‘Air Quality Control Zone’ or to 

one or more sub-areas. When a local air quality advisory or alert is issued, the Borough notifies 

local media to ensure that the declared advisory or alert is broadcast to the public. This 

 1 Fairbanks North Star Borough Assembly Ordinance No. 2010-28, June 10, 2010. 2 Fairbanks North Star Borough Assembly Ordinance No. 2015-01, February 27, 2015 3 Fairbanks North Star Borough Assembly Ordinance No. 2015-18, April 23, 2015 4 Fairbanks North Star Borough Assembly Ordinance No. 2015-29, June 25, 2015 5 Fairbanks North Star Borough Assembly Ordinance No. 2015-73, January 14, 2016 6 Fairbanks North Star Borough Assembly Ordinance No. 2016-21, May 4, 2016 7 Fairbanks North Star Borough Assembly Ordinance No. 2016-37, July 28, 2016 8 Fairbanks North Star Borough Assembly Ordinance No. 2016-20-1A, August 11, 2016 9 Fairbanks North Star Borough Assemvbly Ordinance No. 2016-30, April 28, 2016
Adopted September 7, 2016

III.D.5.11-4

notification includes the PM2.5 forecast, episode curtailment requirements, and additional 

information on how the public can further reduce PM2.5 emissions. Tables 1 and 2 detail the 

advisory and alert requirements in 21.28.050 as amended through June 25, 2015 in Ordinance 

2015-29.

Table 5.11-1 Air Quality Episode Thresholds and Exceptions

Episode Feature Stage 1 

Air Advisory

Stage 2 

Air Alert

Stage 3 

Air Alert

PM2.5 Threshold, μg/m3 25 35 55

Exceptions during cold 

weather?

No No Yes, see Table 2

Exceptions During a Power 

Outage

No Yes Yes

Table 5.11-2 PM2.5 Air Quality Episode Device-Specific Actions

Device Type Stage 1 

Air Advisory 

Stage 2

Air Alert 

Stage 3

Air Alert

EPA-certified Solid Fuel 

Burning appliances, <2.5 g/hr

Voluntary

Curtailment

Voluntary

Curtailment

Operation

Prohibited 

except below -15 ̊F

EPA Phase II Qualified 

Hydronic Heaters, <2.5 g/hr

Voluntary

Curtailment

Voluntary

Curtailment

Operation

Prohibited 

except below -15 ̊F

Non-listed 

Solid Fuel Burning Appliances 

Voluntary

Curtailment

Operation

Prohibited

Operation

Prohibited

Non-listed 

Pellet Fuel Burning Appliances

Voluntary

Curtailment

Operation

Prohibited

Operation

Prohibited 

except below -15 ̊F

Masonry Heaters Voluntary

Curtailment

Voluntary

Curtailment

Operation

Prohibited 

except below -15 ̊F

Fireplaces Voluntary

Curtailment

Voluntary

Curtailment

Operation

Prohibited

Cook Stoves Voluntary

Curtailment

Voluntary

Curtailment

Operation

Prohibited

Waste Oil Burning Appliances Voluntary

Curtailment

Operation

Prohibited

Operation

Prohibited

Non-Permitted Outdoor 

Incinerators, Burn Barrels

Voluntary

Curtailment

Operation

Prohibited

Operation

Prohibited

Campfires, Bonfires, 

Ceremonial Fires, Fire pits

Voluntary

Curtailment

Voluntary

Curtailment

Voluntary

Curtailment
Adopted September 7, 2016

III.D.5.11-5

No other adequate source of 

heat designations, meets other 

requirements in 21.28.030

Voluntary

Curtailment

Voluntary

Curtailment

Voluntary

Curtailment

 

Ordinance 2015-01 grants the FNSB Air Quality Division the ability to receive, log, and 

investigate complaints as well as issue warnings and citations for verified violations of FNSB 

code. In June of 2015 the division added two complaint investigation and response staff 

members. These two postions utilize a mobile air quality monitoring vehicle (sniffer) to track 

PM2.5 concentrations in real time as well as a camera based opactiy reading service (EPA 

Method ALT 082) to verify air quality violations. Once verified, the staff members have the 

ability to engage the resident, discuss emissions reduction strategies, or issue mandatory 

warnings and citations in accordance with FNSB Code 21.28.030 and 1.20.080. Fines range 

from $100 to $1,000 depending on violation and number of offenses. 

Property owners or managers may obtain a “No Other Adequate Source of Heat” (NOASH) 

waiver to episode burn cessation requirements if a property relies on a solid fuel-fired heating 

device as its sole source of heat. To ensure no new construction occurs that would be eligible for 

a NOASH waiver, Ordinance 2016-37 limits the waiver eligibility to properties constructed prior 

to December 31, 2016. NOASH applicants are urged to participate in the Borough change out

program to help reduce emissions by installing an eligible wood or pellet-fired device or replace 

a solid fuel-fired device with a non solid-fuel fired device.

On August 11, 2016, the assembly passed Ordinance 2016-20-1A to allow design and operation 

of a “low cost” air quality monitoring network in the Air Quality Control Zone. This network 

will be comprised, initially, of six Thermo Scientific pDR-1500 monitors and 20 MetOne 

Neighborhood monitors. A pDR-1500 network will monitor air quality throughout the Air 

Quality Control Zone and supplement regulatory monitor data when issuing advisories and alerts 

and tracking air quality trends. A network of MetOne Neighborhood monitors will be used to 

locate and identify high-emitting sources by deploying a small grid of monitors centered around 

“Hot Spot” areas identified by the “sniffer vehicle” or through complaints. Staff will investigate 

high-emitting sources and seek compliance with regulations through education and will issue 

warnings or citations on a case-by-case basis. The MetOne monitors will be relocated to other 

hot spot areas in the Air Quality Control Zone as needed. Future operation of this air quality 

monitoring network is contingent on FNSB appropriations. This enforcement strategy will focus 

limited resources to areas that are most affected by poor air quality as identified through 

complaints, sniffer vehicle data, and other information. The ability to detect large emitters in 

nightime conditions with monitoring equipment will provide for more effective enforcement of 

the Borough episode program than visual detection of smoke alone, especially when a smoke 

stack’s emissions are obscured or cannot be seen or photographed from a public right-of-way. 

Locating and engaging high-polluting device operators with enforcement efforts will provide 

greater emission reductions than traditional program enforcement methods alone.

In 2014, prior to Ordinance 2015-01 which codifies the mandatory episode program described 

above, the Fairbanks North Star Borough established a voluntary program to further encourage, 
Adopted September 7, 2016

III.D.5.11-6

incentivize, and facilitate the voluntary cessation of the use of wood burning appliances (i.e., 

wood stoves, wood-fired hydronic heaters, wood-fired furnaces, fireplaces, fireplace inserts, 

masonry heaters or pellet fuel burning appliances) in the nonattainment area during air quality 

alerts. The Borough recognized that it will be difficult or impossible for some households to 

participate in this program (e.g., those that heat solely with wood or for which wood is a 

necessary supplement during periods of cold weather). Therefore, this program is designed and 

intended for households that are able to use space heating alternatives with significantly lower 

PM2.5 emissions, including those fueled by gas, oil, electricity, propane or district heat, but not 

wood or pellet stoves or other wood burning appliances.

The Voluntary Burn Cessation Program (VBCP) consists of five separate components; an Alert 

System, Social Media, Public Awareness, Marketing, and Incentive program.

• Alert System: Alert Media selected as the notification platform. Alert messages 

during episodes are sent out through email, text messaging and social media.

• Social Media: Alerts, daily forecast, and program signup are available via 

Facebook.

• Public Awareness: 4 updateable reader-boards and 10 static sandwich board 

signs placed alongside roads in Fairbanks and North Pole displaying VBCP 

activity.

• Marketing: Radio, TV, and Newspaper advertising to create awareness of the 

VBCP and current air quality. 

• Incentives: The Borough will recognize all participants of the program at the end 

of the year through a Fairbanks Daily Newsminer advertisement. 

5.11.3. State Episode Program

In addition to the Borough AQI forecast and local episode actions, ADEC has also been 

implementing actions to address high concentration episodes. ADEC’s statewide PM2.5 air 

episode and air advisory requirements are framed in regulation at 18 AAC 50.246. The 

regulations split the overall emergency episode response approachces into two categories: air 

episodes and air advisories. PM2.5 air episodes rely on air monitoring data and are called when 

concentrations reach specific thresholds defined in the regulation. Air advisories are not strictly 

reliant on air monitoring data and may be called when the department finds that, in its judgment, 

that air quality conditions exist that might threaten public health; the advisory regulation allows 

for ADEC response to poor air quality in areas where no air monitors may exist. These two 

categories have differing response features and trigger different supporting requirements within 

the state regulations. In both cases, like the Borough, ADEC publicizes the air quality episode or 

advisory and any actions to be taken to protect public health. However, 18 AAC 50.246 also 

allows ADEC to take action upon a Borough air quality episode or advisory. To avoid 

duplication of effort, ADEC and the Borough may clarify their respective roles under 18 AAC 

50.246 through the Air Quality Memorandum of Understanding (MOU). In the absence of a 

revised MOU, ADEC will continue addressing high concentration episodes as described in this 

section.
Adopted September 7, 2016

III.D.5.11-7

Air episodes for PM2.5 are defined in 18 AAC 50.246. Formal episodes may be triggered if the 

concentration of an air pollutant in the ambient air has reached, or is likely in the immediate 

future to reach, any of the concentrations established in Table 6a of the regulation. DEC will 

declare episodes in the FNSB nonattainment area based on the thresholds in 5.11-3. For PM2.5 

the formal episode concentrations adopted in 2014 and updated in 2016 are as follows:

Table 5.11-3. 

FNSB Nonattainment Area PM2.5 Episode Levels

Episode Type 24-hour Average

PM2.5 Concentration 

(micrograms per cubic meter)

Air Alert Episode 35

Air Warning Episode 55

Air Emergency Episode 150.5

During a formal air episode, in addition to providing information on protecting an individual’s 

health, ADEC will provide information on how an individual may assist in reducing emissions. 

In some instances, ADEC may prescribe and publicize opacity limits for solid fuel-fired heating 

devices as described further below. ADEC tailors its response and curtailment actions to address 

the specific conditions surrounding a specific air pollution event. The following state regulations 

are also triggered by the declaration of an air episode (in addition to any regulations triggered by 

the declaration of an air quality advisory as described below):

• 18 AAC 50.075 (d) – (e)

(d) A person may operate a solid fuel fired heating device in an area for which the 

department has declared a PM-2.5 air quality episode under 18 AAC 50.246 or under emergency 

episode provisions included in a local air quality plan incorporated in the State Air Quality 

Control Plan, adopted by reference in 18 AAC 50.030, only if

(1) visible emissions or opacity from the solid fuel-fired heating device is below 

the opacity limits identified in the episode announcement for that area as defined in the State Air 

Quality Control Plan, adopted by reference in 18 AAC 50.030; or

(2) the owner or operator of the solid fuel-fired heating device obtains a written 

temporary waiver from the department or local air quality control program from the opacity 

limits identified in the episode announcement; the department or local air quality program may 

grant a temporary waiver after considering

(A) financial hardship information provided by the owner or operator;

(B) technical feasibility information provided by the owner or operator;

(C) potential impact to locations with populations sensitive to exposure to

PM-2.5; locations under this subparagraph include hospitals, schools, child care facilities, 

health clinics, long-term care facilities, assisted living homes, and senior centers;

(D) mitigation measures implemented by the owner or operator to prevent

adverse health impacts to individuals sensitive to exposure to PM-2.5; and

(E) the contribution of the device to the exceedance of the PM-2.5

concentration triggering the episode announcement. 
Adopted September 7, 2016

III.D.5.11-8

(3) the department has not prohibited operation under 18 AAC 50.075(e). 

(e) The department may prohibit operation of a solid-fuel fired heating device in an area 

for which the department has declared a PM-2.5 air quality episode under emergency episode 

provisions included in a local air quality plan incorporated in the State Air Quality Control Plan,

adopted by reference in 18 AAC 50.030, only if

(1) the temperature is above the triggering threshold identified in a local air 

quality plan incorporated in the State Air Quality Control Plan, adopted by reference in 18 AAC 

50.030; 

(2) the announcement identifies the air quality zone(s); and 

(3) the announcement identifies exemptions as identified in the State Air Quality 

Control Plan, adopted by reference in 18 AAC 50.030.

Air advisories are established under 18 AAC 50.245 and 18 AAC 50.246(b), which sets forth 

that “the department will declare an air quality advisory if, in its judgment, air quality or 

atmospheric dispersion conditions exist that might threaten public health”. If the department 

declares an air quality advisory it may request voluntary emission curtailment actions. For 

PM2.5, the department declares air advisories in the FNSB nonattainment area when pollutant 

concentrations have reached, or are expected to reach, 25 μg/m3 using a 24-hr rolling average of 

1-hr BAM or other DEC-approved monitoring equipment data indicating air quality conditions 

exist that might threaten public health or, alternatively, using meteorological data indicating 

atmospheric dispersion conditions exist that might threaten public health. 

Table 5.11-4. 

FNSB Nonattainment Area PM2.5 Advisory Level

Type 24-hour Average

PM2.5 Concentration 

(micrograms per cubic meter)

Advisory 25

DEC may exclude individual air quality zones from an advisory announcement when air quality 

conditions in that zone are not expected to exceed 25 μg/m3 based on monitoring or 

meteorological data. The following specific state regulations are triggered by the declaration of 

an air quality advisory:

• 18 AAC 50.065(e)

“Open burning is prohibited in an area if the department declares an air quality advisory 

under 18 AAC 50.245 or 18 AAC 50.246, stating that burning is not permitted in that 

area for that day. This advisory will be based on a determination that there is or is likely 

to be inadequate air ventilation to maintain the standards set by 18 AAC 50.010. The 
Adopted September 7, 2016

III.D.5.11-9

department will make reasonable efforts to ensure that the advisory is broadcast on local 

radio or television.”

• 18 AAC 50.075(a)(2)

“A person may not operate a solid fuel fired heating device in a manner that causes

(1) black smoke; or

(2) visible emissions that exceed 20 percent opacity for more than 6 minutes in any one 

hour, except during the first 15 minutes after initial firing of the unit, in an area for which 

an air quality advisory is in effect under 18 AAC 50.245 or 18 AAC 50.246. Visible 

emissions are measured following opacity reading procedures as required by Vol. 3., sec. 

IV-3, Appendix IV-3, of the state air quality control plan, adopted by reference in 18 AAC 

50.030; 

Given the history of significant wintertime air quality episodes within the FNSB PM2.5 

nonattainment area and concerns of local residents related to the implementation of wood heating 

curtailment during air quality episodes, ADEC defined an approach for allowing solid-fuel fired 

devices to operate during an episode provided they meet an opacity level during formal air 

quality episodes inside the nonattainment area under 18 AAC 50.075(d). During 2015, the FNSB 

established local curtailment requirements. In 2016, ADEC adopted similar curtailment 

requirements into this SIP. The existing ADEC opacity requirements will remain in effect in any 

instances when solid-fuel heating curtailments are not announced during air episodes. 

Solid-fuel Fired Device Opacity Levels during Air Quality Episodes and Advisories Under 18 

AAC 50.075(d)

The visible emission regulations in 18 AAC 50.075(d) apply specific opacity levels during 

formal air quality episodes and advisories. Properly operated, efficient solid-fueled heating 

devices using the proper fuels should be able to meet the stated opacity limits during an episode

or advisory. Efficient operations not only reduce air pollution but allow for the burning of less 

wood, an economic or time savings to residents who buy or cut wood. 

In the FNSB nonattainment area, solid fuel-fired heating devices are subject to a more stringent 

requirement; a 20% visible emission or opacity limit must be met during air quality advisories in 

addition to episodes. Should ADEC determine that the specific conditions surrounding a specific 

air pollution event within the FNSB nonattainment area warrant an announcement for opacity 

restrictions for solid fuel-fired heating devices, ADEC will issue an announcement that identifies

the 20% opacity limit that is in effect. For purposes of implementing the opacity regulations, 

PM2.5 episodes and advisories within the FNSB PM2.5 nonattainment area are treated equally

The opacity limit for the FNSB non-attainment area during an air episode or advisory are as 

follows:
Adopted September 7, 2016

III.D.5.11-10

Table 5.11-5

FNSB Nonattainment Area Opacity Limits during Air Pollution Events

Opacity Limit PM2.5 Concentration 

(μg/m3)

20% > 25 (24-hour average)

For compliance and enforcement purposes, opacity is measured using EPA method 9, as modified 

by following opacity reading procedures as required by Vol. 3., sec. IV-3, Appendix IV-3, of the 

state air quality control plan, adopted by reference in 18 AAC 50.030, by a person who has passed 

and is current in their Method 9 certification. DEC has also adopted into regulation the option to 

use a camera-based EPA method 9 alternative (EPA Method ALT-082) and may consider using 

camera based opacity measurements in the future.

Upon observing an opacity limit exceedance during a declared episode, the department will 

attempt to provide education on the correct maintenance and operation of the solid fuel-fired 

device. Education could also include the use of proper fuels. If education does not provide a 

remedy to the opacity exceedances, the department may issue a Notice of Violation, Abatement 

Order, or may pursue other administrative enforcement remedies. 

Solid-fuel Fired Device Curtailment during Air Quality Episodes Under 18 AAC 50.075(e)

In 2016, ADEC expanded its regulations to include a framework that would allow ADEC to 

institute curtailments during air quality episodes if an episode plan includes specific

requirements of the burn curtailment. ADEC also divided the nonattainment areas into three 

zones to allow for the ability to tailor its response to air pollution events specifically to a more 

defined area. 

For PM2.5, the department declares air episodes in the FNSB nonattainment area when pollutant 

concentrations have reached, or are expected to reach, the thresholds identified in table 5.11-3. 

DEC relies on 24-hr rolling average of 1-hr BAM measurements or 24-hr rolling average data 

from other DEC-approved monitoring equipment when determining if conditions for an air 

quality episode have been met.

Under the 18 AAC 50.075(e) framework, the department will declare prohibitions on the 

operation of solid-fuel fired heating devices during air quality episodes if, at a minimum, the 

following conditions exist:

• An air quality episode has been declared under 18 AAC 50.246, based on air quality 

episode thresholds located in Table 5.11-3

• The temperature is not lower than -15 ̊ Fahrenheit as measured at the Fairbanks 

International Airport

ADEC must also issue an episode announcement that identifies the following:
Adopted September 7, 2016

III.D.5.11-11

• The Air Quality Control Zone or Zones where the prohibitions are in effect; the 

boundaries of the Goldstream, Fairbanks, and North Pole Air Quality Control Zones are 

located in III.D.5.03.

• Exceptions to the prohibition of solid-fuel heating device operation.

Given previous community concerns about the reasonableness of requiring residents to cease use 

of solid fuel-fired heating devices during periods of poor air quality coupled with extreme cold 

temperatures, ADEC’s regulations provide exceptions for continued use of solid fuel-fired 

heating devices during air quality episodes if conditions or individual circumstances require the 

use of solid-fuel heating devices. 

Exceptions to the requirement to cease operation of a solid-fuel heating device during an episode 

must include:

• Cases where electrical power outages prevent the use of alternative heating devices

• Cases where the device owner or operator has obtained a temporary waiver from the 

Department or local program under 18 AAC 50.075(d)(2) 

Exceptions to individual episodes may also include:

• Exceptions based on the class of solid fuel fired heating device

• Exceptions based on device particulate matter emission rates

However, before declaring a prohibition on the operation of solid fuel-fired heating devices in 

each air quality zone during an air quality episode, ADEC will review the relevant and available 

NWS, FNSB, and state meteorological data, weather forecasts, affected area, strength of the 

inversion, and potential duration of the inversion. It is possible that ADEC will issue air quality 

episodes that do not include a prohibition of the use of solid fuel-fired heating devices or do not 

include prohibitions in all three zones, especially if weather conditions indicate a clearing prior 

to any effect of a curtailment could be realized. ADEC will endeavor to ensure a curtailment is a 

reasonable approach given the conditions and available data, with the objective of realizing air 

pollution reduction benefits from the action.

ADEC will use the following approaches to notify the public of requirements and address any 

compliance issues. The public will be notified of an air quality episode that has specific opacity 

limits and/or curtailment requirements utilizing several outreach methods. All episode 

announcements are emailed to ADEC’s up-to-date distribution list. This distribution list contains 

all local media outlets (radio, TV), the FNSB Air Quality Program staff, elected officials, and 

anyone who signs up for electronic notices. ADEC has online sign-up capabilities for various 

electronic notices and alerts through its Air Online Services accessible through the Division of 

Air Quality’s home page at: http://dec.alaska.gov/air . In addition to these electronic emailed 

announcements, all advisories (alert and episode) are posted to the Division’s Air Quality 

Advisories web page at: http://dec.alaska.gov/Applications/Air/airtoolsweb/Advisories/, which 

includes the actual advisory, the start and end dates, the area, and status (expired, active) of the 

advisory. ADEC will also post advisories on its Burn Wise Alaska face book page as well as the 

department’s Twitter account. 
Adopted September 7, 2016

III.D.5.11-12

In addition to providing notification when the opacity limits and/or curtailment requirements are 

in effect, the department plans to provide on-going public information on the opacity limits and 

ways that residents can comply. Difficulty meeting opacity limits could be due to wet 

wood. Under state regulation, residents are required to use dry wood during winter months. 

Under Borough code, residents are required to use dry wood year round.9 Residents will be 

directed to those wood sellers participating in the Moisture Disclosure Program where wood 

sellers either disclose the moisture content of purchased wood or agree to provide dry wood. The 

program will become a mandatory requirement in the nonattainment area following 

reclassification of the area as serious. Brochures on proper maintenance and operation of a solidfuel fired device will also be available. To the extent that ADEC resources allow, staff can assist 

residents who request help in determining in advance of episode conditions whether their typical 

burning operations meet the opacity limits outlined in this plan.

If a resident is found to be out of compliance with the opacity limits or curtailment requirements

identified for a specific episode, ADEC is responsible for taking actions to enforce the state 

requirements. The FNSB is responsible for taking actions to enforce any local requirements. 

Where the local and state requirements are substantively similar, the two agencies coordinate to 

ensure that only one agency takes enforcement action. The department’s compliance activities 

are conducted using the tools and authorities provided under the state statutes. The Division of 

Air Quality does not have statutory authority to issue administrative penalties for violations of 

Alaska environmental law. This means that ADEC staff cannot simply write “tickets” to 

individuals that are found to be violating the opacity limits. All compliance and enforcement 

activities are case specific, however, ADEC generally initiates compliance activities in response 

to complaints received that indicate the potential for violations of a state regulation. ADEC staff 

investigate complaints to verify or corroborate a problem or violation of a state requirement. In 

most cases, the department finds that compliance can be achieved through assistance to 

businesses and individuals in understanding the regulatory requirements and how they can 

comply. In the case of problem burners failing to meet these opacity levels during air quality 

episodes, it is important to bring a unit into compliance quickly to reduce smoke and assist in 

bringing levels of PM2.5 into compliance in the local area. As a result, if a resident working with 

or without the assistance of ADEC does not come into compliance, ADEC staff would request 

that the resident stop burning for the duration of the air quality episode if they have another 

heating source available. In the event that compliance assistance is not successful in resolving a 

recurring smoke concern at a specific residence or business, the department staff may use 

additional administrative enforcement tools, such as nuisance abatement orders or Notices of 

Violation, to address the concern.

 9 Fairbanks North Star Borough Assembly Ordinance No. 2015-01, February 27, 2015