## 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 7 th 

## , 2016

Bill Walker, Governor

Larry Hartig, CommissionerAdopted 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 PM 2.5 standard from 65 m icrometers per cubic meter (μg/m 3 ) to 35 μg/m 3 in December 2006, S tates 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 buildi ng in downtown F airbanks from 1999

– 2006, DEC recommended that Fairbanks be designated nonattainment for the revised PM 2.5 standard. Based on this recommendation, EPA initiated a process to define the size of the PM 2.5 nonattainment area within Fairbanks. Since

monitorin g 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 conse rvative). 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 emi ssion inventory estimates, etc. This information ultimately led to the selection of a much smaller final PM 2.5 nonattainment boundary for

Fairbanks. The PM 2.5 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 n eeded to

attain the standard.

Figure 5.3

- 1 shows a map of the nonattainment area boundary. The EPA rulemaking establishing the PM 2.5 nonattainment area 1 included the following townships and ranges within the Fairbanks North Star Borough:

• MTRS F001N0 01 W

— All Sections;

• MTRS F001N001E

— Sections 2

– 11, 14

– 23, 26

– 34;

• MTRS F001N002 W

— 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 F002N001 W

— Sections 28, 31

– 36;

• MTRS F002N002 W

— 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, page s 58688

- 58781

.Adopted September 7, 2016

III.D.5.3

- 2 Figure 5.3

- 1 . Fairbanks PM 2.5 Nonattainment Boundary

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

showed that PM 2.5 concentrations were dramatically lower than those collected in downtown

Fairbanks and meteorol ogical 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

doc ument 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 PM 2.5 concentrations, they were also included within the nonattainment boundary.

A detailed ratio nale 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 Pr ogram. 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 Met hod (FRM) m onitoring at the North Pole Fire 3# s ite has shown significantly higher concentrations of PM 2.5 than Fairbanks FRM monitoring . The 201 5 North

Pole 24

- hr design value calculated using quality controlled, non

- exceptional event, FRM data

from 201 3 , 201 4 , and 201 5 is 124 μg/m 3 . 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 98 th Percentile (FRM) 2015

24

- hour Design

Value (FRM)

2015 2014 2013 24

- hr

Fairbanks / State Office Building 02

- 090

- 0010 3 5

. 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 124Adopted September 7, 2016

III.D.5.3

- 1 Figure 5.3

- 2. Air Quality Control ZonesAdopted 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 a long 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 bor der 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 BoundaryAdopted 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/m 3

.



### 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 c urrently 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 High way 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

intersectio n 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

Farme r’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 wh ich 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

clo sely 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 BoundaryAdopted September 7, 2016

III.D.5.3

- 1 

### 5.3.3

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

**Non a**  **ttainment**

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/m 3 to 35 μg/m 3 , and retained the annual fine particle standard at 15 μg/m 3 . In 2012, EPA retained the 24

- hour PM 2.5 standard, but strengthened the annual standard to12 μg/m 3 . 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, 98 th percen tile, etc.).

The 24

- hour PM 2.5 standard is calculated using a three

- year average of annual 98 th 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 PM 2.5 standard. The design value for the base year was calculated from 98 th 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/m 3 . 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 con trols, 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 m eteorological 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 condition s, 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/m 3 ( the design day is the average of the modeling episode dates ambient monitored b y 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 exceedi ng 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 t o 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 temperat ures. 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 concentra tions; 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 re corded 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 exce ed 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 wit h concentrations that exceed the 41 μg/m 3 design value.Adopted September 7, 2016

III.D.5.3

- 3 Table 5.3

- 1 Summary of Fairbanks PM 2.5 Concentrations* and Daily Temperatures During January/February 2008 Design Episode

Date 24

- hour Concentrations (μg/m 3 ) 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 T able 5.3

- 2 Summary of Fairbanks PM 2.5 Concentrations * and Daily Temperatures During November 2008 Design Episode

Date 24

- hour Concentrations (μg/m 3 ) 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

* FRM s are operated once every three days; BAMs collect hourly values, which are used to calculate 24

- hour

average s.

## ALASKA DEPARTMENT OF

ENVIRONMENTAL CONSERVATION

Amendments to:

State Air Quality Con trol Plan

Vol. II: III.D.5.7

Control Strategies

Adopted

September 7 th 

## , 2016

Bill Walker, Governor

Larry Hartig, CommissionerAdopted September 7 th , 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 su ch 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 t o apply to PM 2.5 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 emissio ns greater than 5 tons per year (TPY) of PM 2.5 (see Appendix III.D.5.7 for RACT details) or its precursors (NOx and SO 2 ). All

PM 2.5 precursors were addressed (NOx, SO 2 , NH 3 , VOCs), but only NOx and SO 2 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 s ection on RACT for more details

.



### 5 .7.2 Reasonably Available Control Measures (R ACM) for other sources

Identification of RACM is a 5

- step process:

• Step 1: Identif y source categories with non

- trivial emissions of PM 2.5 or its precursors.

• Step 2: For each source category, source, or activity from Step 1, develop a list of technological ly 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 measur e 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 7 th , 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 i dentify the most important sources for

PM 2.5 in the nonattainment area.

• Wood burning

o Outdoor w ood

- burning boilers (hydronic heater)

o Wood s toves

o Fireplaces

o Burn barrels, residential open burning

o Agricultural and f orest b urns

• Residential f uel o il c ombustion

• Transportation

o Automobiles

o Heavy

- duty v ehicle s

DEC , in consultation with the FNSB

, ha s determined that the following control measures are RACM. Details of the analysis supporting these determinations are provided in Appendix

III.D.5.7.

• Educatio n and o utreach 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.

• O p en

- 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 PM 2.5 nonattainment area relies on several primary control strategies coupled with additional voluntary measures to mitigate PM 2.5 air pollution. During the period 2008

- 2013, a number of programs were implemented to encourage changes in behavior that produce emission

reductions. T he 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 t otal credit taken for all voluntary measures is 0.5 μg/m 3

.

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 (previouslyAdopted September 7 th , 2016

III.D.5.7

- 4 8.21) of the borough ordinances. 3

, 4

, 5

, 6

, 7

, 8

, 9

, 10 The ordinances hav e 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 PM 2.5 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 PM 2.5 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 commu nity 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 t o 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 PM 2.5

.

3 Fairbanks North Star Borough Assembly Ordinance No. 2015

- 01, February 27, 2015

4 Fairbanks Nort h 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 Ass embly 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, 2016Adopted September 7 th , 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 re duce 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 PM 2.5 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 PM 2.5 concentrations.

The change

- out program has been popular with local residents and h as evolved between 2010

and 2014 as the FNSB adapted and improved the program to create addition al incentives for participation. From inception through August 2014, the Borough has repaired, replaced, or removed signific ant numbers of solid

- fuel heaters. Table 5 .7

- 1 provides the numbers of heaters changed out in va rious 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, th e 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 natu ral turnover).Adopted September 7 th , 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

T otal 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 O utdoor H ydronic H eater (not replaced) 72 4.8%

Remove of Indoor H ydronic H eater (not replaced) 16 1.1%
Repairs to EPA certified devices 48 3.2%
Fireplace Replacements 17 1.5%

Figure 5 .7

- 1Adopted September 7 th , 2016

III.D.5.7

- 7 In addition to the Borough’s change out program, the Alaska L egislature 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 id entified 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 Emi s sion Inventory, Section 5.6.

In order to provide support for the Borough’s change out program , i n Novem ber 2014, the state adopted a new regulation that requires that all new wood

- fired heating device s 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 50.07 7, 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 PM 2.5 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 s tandards are set at a level of 2.5 gram/hour for wood stoves, wood

- fired outdoor hydronic heaters, and larger woo d

- 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

. H owever they only apply to the B orough’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 PM 2.5 emission rating of 2.0 grams per hour or less. Hydronic heaters must be pellet

fired, EPA

- certi f ied, and have an emission rate of 0.1 0 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 7 th , 2016

III.D.5.7

- 8 The B orough also adopted requirements for home heat ing device installations inside the air quality control zone that are not conducted as part of the change out program

. 11 The Borough

established m inimum 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 emissio n rating of 2.5 grams per hour or less or 0.10 lbs/mmBtu for hydronic heaters

. T he 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 with in 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 exi sting 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 impleme ntation 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

volun tarily 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 sin gle 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 volunt ary 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, 2016Adopted September 7 th , 2016

III.D.5.7

- 9 In order to achieve the greatest PM 2.5 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 n onattainment 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 F airbanks air quality program with respect to improving resident’s use of solid

- fuel heating devices thereby reducing PM 2.5 emissions . P ublic

outreach efforts focus on measures residents can take to protect themselves and to reduce PM 2.5 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” campai g n 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 “B urn 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 c ertified 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 appropri ate 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, th ese 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

progr ams primar ily 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 informat ion 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 isAdopted September 7 th , 2016

III.D.5.7

- 10 important for correct operation of both newer a nd older wood

- fired heating devices. Not only is the burning of dry wood more efficient , but it signficantly reduces PM 2.5 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

. Bo rough 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 so lid 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 nonattainme nt 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 PM 2.5 air quality episodes

. The

revisions to the regulation coupled with the emergency episode provision s defined in section 5.11 of this plan, require that solid fuel

- fired heaters meet 20% opacity limits during PM 2.5 air quality episodes. This standard reflect s improvements in wood heating tech nology 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 . W hen 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 addressin g high emitting devices, particularly during periods of poor air quality.

R egulatory 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 PM 2.5 emissions at this time, the use of coal for heating residential homes and business es 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 device s and has a lower opacity requirement (20%) than

wood

- fired heating units during air qual ity 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 201 6 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

c ompliance activities are conducted using the tools and authorities provided un der the state

statutes. The Division of Air Quality does not have statutory authority to issue administrative penalties for violations of Alaska environmental law

. T his 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

. H owever, ADEC generally initiates compliance

12 Fairbanks North Star Borough Assembly Ordinance No. 2015

- 01, February 27, 2015Adopted September 7 th , 2016

III.D.5.7

- 11 activities in response to com plaints 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 achiev ed 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 enforc ement tools such as written notices of violation, compliance agreements, nuisance abatement orders, and in rare cases, civil court

actions.Adopted September 7 th , 2016

III.D.5.7

- 12 

### 5.7.2.4 Encouraging Reduced Use of Solid

- Fuel Heaters During Air Pollution Episodes

T he FNSB and ADEC A ir Progr ams 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 PM 2.5 concentrations. Public outreach is an important component of this strategy. P ublic 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. A dvisories are called during winter months when forecasts indicate that the 24

- hour average PM 2.5 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 PM 2.5 standard. As part of the advisory, the public is informed of voluntary measures they can take to protect themselves and to reduce PM 2.5 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

unr easonable 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 r esidents are more likely to shift from wood or coal to another heating fuel when temperatures are warmer (e.g. war mer 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 F NSB 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 durin g 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 PM 2.5 emissions, including those fueled by gas, oil, electricity, propane

or district heat.

The VBCP consists of 5 separate components; an A lert System, Social Media, Public Awareness, Marketing, and Incentive program.

• Alert System: Alert m edia selected as the notification platform. Alert messages during episodes are sent out through email, text messaging and social media.

• Social Media: Al erts, 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 7 th , 2016

III.D.5.7

- 13 • Marketing: Radio, TV, and Ne wspaper 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 implement ed regulations (18 AAC 50.075(d)) that provide for more stringent visible emission (opacity) requirements for wood

- fired smoke stacks during ai r pollution events

. As described further in section 5.11, air quality episodes will trigger this requirement when 24

- hour

concentrations exceed 25 μg/m 3

. The public health concerns associated with poor air quality episodes require a response that mitigat es 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. Gi ven 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 econom ic 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 spe cific 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 boo k 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 com ply

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

r esidents 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 Disclosur e 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 Bo rough Assembly Ordinance No. 2015

- 01, February 27, 2015Adopted September 7 th , 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 p rovided under

the state statutes. The Division of Air Quality does not have statutory authority to issues administrative penalties for violations of Alaska environmental law

. T his 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 regula tion. 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 re gulatory 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 PM 2.5 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 additiona l 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 di scovered, the department has also included in the regulation a provision for a temporary waiver for situations where the owner/operator of a wood

fired heating unit demonstrates financial hardship or technical feasibility issues in meeting the opacity requ irements. 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 o f the PM 2.5 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 t hey 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 theAdopted September 7 th , 2016

III.D.5.7

- 15 energy ratings and receive a rebate based on their home’s impr oved energy

- efficiency and eligible receipts. O nly 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 provi ders 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 window s

• 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 natura l 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 pro vide 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 p roject 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 provi de 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 asAdopted September 7 th , 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 Borou gh 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 facili ties (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

ma de more viable with Congress’ passage of the Transportation Equity Act for the 21 st 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 redu ces motor vehicle emissions

under extreme cold start conditions.

In support of the ir 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

th ought 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 b een completed, or are scheduled for completion

, between 2008 and 201 5 :

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 PM 2.5 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 91Adopted September 7 th , 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 A rea 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 elect r ical infrastructure in parking lots, the Assembly passed an ordinance ii 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 du ring 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 areAdopted September 7 th , 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.

• T he 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 inc lude:

• 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 avai lable 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 ordina nce 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 Boro ugh encourage s 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 te mperatures 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 PM 2.5 emissions would be reduced withou t 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 info rm 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 7 th , 2016

III.D.5.7

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

2. Keeps the air pure and improves air qualit y; 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 implement ation 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 Depa rtment 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, a s 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 nine

passenger 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 r idership 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 freque ncy on high ridership routes, and a new route serving Fort Wainwright. Other notable improvements includeAdopted September 7 th , 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 inten d s to build more shelters with additi onal 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 PM 2.5 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 prov ide 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 averag ing 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,

consis tent, and informative internal messaging campaign.

Building off of the DOT&PF’s efforts to reduce idling, the ADEC and DOT&PF have develope d a Fairbanks specific CMAQ

- funded pilot p rogram intended to reduce heavy duty diesel

emissions in the nonattainment area through anti

- idling, maintenance

, and other emission reduction opportunities. The f ocus of the program is to expand the use of auxili ary 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 t elemetric 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 p rovide 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

work ing with the heavy duty fleet owners by providing education material s and training,Adopted September 7 th , 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 techno logies 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 sho p.

Th is 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 o perations 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 entire ly or in part through the use of CMAQ funds . Once

initiated

, future installations within a fleet would be limited to actual heater install ation s and/or

telem etr ics only.

Project funds would be provided for first time installations only, not for replaceme nt 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 R eduction E fforts

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 D OT &PF to rep lace three 1985 Autocar KM64 trucks

with three 2010 International 7600SFA Works tar 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 Railro ad 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 usin g DERA g rant 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. ReductionAdopted September 7 th , 2016

III.D.5.7

- 22 in idle time was estima ted 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 commu nity 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 re trofit 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 emis sions 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 evaporati ve 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 Ve hicle Control Program (FMVCP) is the federal certification progr am 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 b e 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 n ewer, 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 cont rol 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 enhanc e d the performance of motor vehi cle emission control systems. Starting in 2017, Tier 3 will further reduce both tailpipe and evaporative emissions from passenger cars, light

- duty trucks, medium

- duty passeng er vehicles, and some heavy

- duty vehicles. Additional reductions in gasoline sulfur will make emission control systems more effective for both existingAdopted September 7 th , 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 inven tory 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 Boroug h had an ordinance to restrict wintertime open

burnin g. In 2013, th e Borough Assembly repealed th at ordinance in response to a voter initiative

that restricte d 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 re gulations 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 a n

a ir quality advisor y (see 18 AAC 50.245).

To f urther strengthen this requirement inside the non attainment area by reduc ing confusion on whether open burning is permitted on a given day and ensur ing greater compliance and less smoke emissions in the airshed, ADEC revised 18 AAC 50.065(f) to prohibit op en 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 re sult, 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 D epartment’s other open burning and air pollution regulat ions. C oncerns 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 a n open burn permit program in lieu of the seasonal restriction, if they demonstrate the program will not cause or contribute to viol ations of the PM 2.5 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 ci tizens. In recent years, the Borough has not ha d 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 PM 2.5 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 majorAdopted September 7 th , 2016

III.D.5.7

- 24 stationary source as any stationary facility or sou rce 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 th e 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 PM 2.5 RACT is a fabric filter system for boilers.

Additional PM 2.5 controls are considered unreasonable for process heaters and turbines. RACT

for SO 2 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 PM 2.5 in Fairbanks.

All of the emission units that were reviewed are already implementing the emission control technique s 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 s pecific RACT for those sources currently using liquid fuels.

S tationary 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,

hist orical 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 acc ounted 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 me asures 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 inAdopted September 7 th , 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, reflec ting 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 Benef its 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 PM 2.5 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 PM 2.5 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 ofAdopted September 7 th , 2016

III.D.5.7

- 26 PM 2.5 emissions and PM 2.5 air monitoring data in this attainment plan, the agencies commit to re

evaluating the entire mix of control measures as early as 201 6 , following the 201 5 attainment deadline, to determine whether the measures have succeeded as planned in reducing emissions and improving air qua lity . 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 Fairb anks 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 7 th



## , 2016

Bill Walker, Governor

Larry Hartig, CommissionerAdopted 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 PM 2.5 

### 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 PM 2.5 data

collected from the ambient m onitoring / meteorological reporting network and supplemented by a predictive model developed specifically for the purpose of forecasting PM 2.5 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 p rovides 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 a n air quality forecast ing tool called the AQ Alert Model

that projects PM 2.5 concentrations over a four day window (the remainder of today, tomorrow, and the following two days). The model outputs includ e the predicted values for PM 2.5 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 und erstanding the PM 2.5 predictions. T o accomplish this, t he model accesses in near

real time a wide range of data on recent PM 2.5 concentrations and meteorological conditions at the monitor sites, surface observations and upper air soundings taken at the Fa irbanks 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 t he relationship between meteorological

conditions and ambient PM 2.5 concentrations. The statistical model is based on a detailedAdopted 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 PM 2.5 c oncentrations. 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 PM 2.5 levels can be generated at any time but are normally prepared in the hour preceding 5 pm local time. Air quality specialist s use the modeled forecasts as one input to the decision

- making process for issuing an air quality advisory

. Other inputs a re the afternoon forecast of dispersion conditions issued by the NWS forecasting office in

Fairbanks and the assessment by FNSB personnel of m any 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 f ront s seen in satellite photos

.



### 5.11.2. Borough Episode Pr ogram

In June 2010 , the FNSB Assembly adopted revisions to the Borough’s Code to establish the local

PM 2.5 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 PM 2.5 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 reorg anized Borough Code, re s ulting in the relocation of the PM 2.5 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 ha ve been inserted into Appendix III.D.5.12

– Assurance of Adequacy.

Borough code, 21.28.050, requires the Borough to issue daily weekday PM 2.5 forecasts during the winter months of October through March before 4:30 pm. Air quality staff evaluate hourly

and 2 4

- hour average air quality monitoring and meteorological data when making forecasts. If

the PM 2.5 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 a n 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 whol e 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 Zon e ’ 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, 2016Adopted September 7, 2016

III.D.5.11

- 4 notification includes the PM 2.5 forecast , episode curtailment requirements, a nd additional information on how the public can further reduce PM 2.5 emissions. Tables 1 and 2 detail the advisory and alert requirements in 21.28.050 as amended through June 25, 2015 in O rdinance

2015

- 29.

Table 5.11

- 1 Air Quality Episode Thresholds and E xceptions

Episode Feature Stage 1 Air Advisory Stage 2

Air Alert Stage 3

Air Alert

PM 2.5 Threshold, μg/m 3 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 PM 2.5 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

CurtailmentAdopted 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 grant s the FNSB Air Quality Division the ability to receive, log, and

investi gat e complaints as well as issue warnings and citations for verified vi o lations 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

PM 2.5 conc entrations 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 strat e gies, or issue man datory warnings and citations in accordance with FNSB C ode 21.28.030 and 1.20.080. Fines range from $100 to $1,000 depending on v i olation 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 t o 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.

O n August 11

, 2016, the assembly passed Ordinance 2016

- 20

- 1A to allow design and operation of a “low cost” air qua l ity 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 ope ration of this air qual i ty 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 othe r information. The ability to detect large emitters in nightime conditions with monitoring equipment wil l provide for more effective en forcement 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, t he 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 nonatta inment 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 c old weather). Therefore, this program is designed and intended for households that are able to use space heating alternatives with significantly lower

PM 2.5 emissions, including those fueled by gas, oil, electricity, propane or district heat, but not

wood or pellet stoves or other wood burning appliances.

The V oluntary 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.

• Incenti ves : 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 implement ing actions to address high concentration episodes. ADEC’s statewide PM 2.5 air episode and air advisory requirements are frame d in regulation at 18 AAC 50.246 . The regulations split the overall emergency episode response approachces i nto two categories: air episodes and air advisories. PM 2.5 a ir 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 m ay 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

cate gories 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 Unders tanding (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 A ir episodes for PM 2.5 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 6 a of the regulation. DEC will declare episodes in th e FNSB nonattainment area based on the thresholds in 5.11

- 3. For PM 2.5 the formal episode concentrations adopted in 2014 and updated in 2016 are as follows:

Table 5.11

- 3

. FNSB Nonattainment Area PM 2.5 Episode Levels

Episode Type 24

- hour Average

PM 2.5 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

hea l th, 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 (i n addi tion 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 de vice 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 subparagr aph 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 p rohibit 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.

A ir advisories are established under 18 AAC 50.245 and 18 AAC 50.24 6 (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 requ est voluntary emission curtailment action s

. For

PM 2.5 , the department declares air advisories in the FNSB nonattainment area when pollutant concentrations have reached, or are expected to reach, 25 μ g/m 3 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 PM 2.5 Advisory Level

Type 24

- hour Average

PM 2.5 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/m 3 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. TheAdopted 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 PM 2.5 nonattainment area and concerns of local residents r elated to the implementation of wood heating

curtailment during air q uality 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

. I n 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 ar e not announced during air episodes

.

So lid

- 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 requiremen t ; 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 identif ies

the 20% opacity limit that is in effect. For purposes of implementing the opacity regulations,

PM2.5 episodes and advisor ies within the FNSB PM 2.5 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 Non a ttainment Area Opacity Limits during Air Pollution Events

Opacity Limit PM 2.5 Concentration ( μg/m 3 )

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 departm ent 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 fr amework that would allow ADEC to

institu t e curtailments during air quality episodes if an ep i sode plan include s 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 PM 2.5 , the department declares air episodes in the FNSB nonattainment area when pollutant concentrations have reached, or are expected to reach, the thresholds identified in tabl e 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 a n 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 Contr ol Zone or Z ones 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.

• Ex c eptions 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 includ e:

• 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 episo des may also include:

• Exceptions based on the class of solid fuel fired heating device

• Exceptions based on device particulate matter emission rates

However, b efore 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 zone s , especially if weather conditions indicate a clearing prior to any effect of a curtailment could be real ized. 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 outr each 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 s taff, elected officials, and anyone who signs up for electronic noti ces. 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 addi tion 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 w ell 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 resident s 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 mainte nance 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 l imits outlined in this plan.

If a reside nt is found to be out of compliance with the opacity limits or curtai l ment requirements identified for a specific episode, ADEC is responsible for taking actions to enforce the state requirement s

. 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 complian ce 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 . T his means that ADEC staff cannot simply write “tickets” to individuals that are found to be violating th e opacity l imit s. 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 assist ance 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 quick ly to reduce smoke and assist in bringing levels of PM 2.5 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 , A DEC staff would request that the resident stop burning f or 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

add itional 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