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Request for Reclassification of Coachella Valley for the 1997 8-Hour Ozone Standard

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Request for Reclassification of Coachella Valley for the 1997 8-Hour Ozone Standard SOUTH COAST AIR QUALITY MANAGEMENT DISTRICT Final Staff Report Request for Reclassification of Coachella Valley for the 1997 8-Hour Ozone Standard June 2019 Executive Officer Wayne Nastri Deputy Executive Officer Planning, Rule Development, and Area Sources Philip M. Fine, Ph.D. Assistant Deputy Executive Officer Planning, Rule Development, and Area Sources Sarah L. Rees, Ph.D. Authors: Kalam Cheung – Program Supervisor Scott Epstein – Program Supervisor Sang-Mi Lee – Program Supervisor Britney Gallivan – AQ Specialist Kelly Trainor Gamino – AQ Specialist Contributors: Amir Dejbakhsh – Assistant Deputy Executive Officer Mitch Haimov– Sr. AQ Engineering Manager Elham Baranizadeh – AQ Specialist Reviewed by: Zorik Pirveysian – Planning and Rules Manager Barbara Baird – Chief Deputy Counsel Laki Tisopulos – Deputy Executive Officer SOUTH COAST AIR QUALITY MANAGEMENT DISTRICT GOVERNING BOARD Chairman: DR. WILLIAM A. BURKE Speaker of the Assembly Appointee Vice Chairman: BEN BENOIT Council Member, Wildomar Cities of Riverside County MEMBERS: LISA BARTLETT Supervisor, Fifth District County of Orange JOE BUSCAINO Council Member, 15th District City of Los Angeles Representative MICHAEL A. CACCIOTTI Council Member, South Pasadena Cities of Los Angeles County/Eastern Region VANESSA DELGADO Senate Rules Committee Appointee JANICE HAHN Supervisor, Fourth District County of Los Angeles LARRY MCCALLON Mayor Pro Tem, Highland Cities of San Bernardino County JUDITH MITCHELL Mayor, Rolling Hills Estates Cities of Los Angeles County/Western Region V. MANUEL PEREZ Supervisor, Fourth District County of Riverside DWIGHT ROBINSON Council Member, Lake Forest Cities of Orange County JANICE RUTHERFORD Supervisor, Second District County of San Bernardino VACANT Governor’s Appointee EXECUTIVE OFFICER: WAYNE NASTRI TABLE OF CONTENTS EXECUTIVE SUMMARY ES-1 CHAPTER 1: INTRODUCTION INTRODUCTION 1-1 ATTAINMENT STATUS OF COACHELLA VALLEY FOR OZONE 1-1 NATIONAL AMBIENT AIR QUALITY STANDARDS HISTORY OF AIR QUALITY PLANNING FOR THE 1997 1-2 8-HOUR OZONE STANDARDS IN COACHELLA VALLEY CURRENT ATTAINMENT STATUS FOR THE 1997 8-HOUR OZONE 1-4 STANDARD IN COACHELLA VALLEY PLANNING AREA CHAPTER 2: AIR QUALITY TRENDS INTRODUCTION 2-1 FACTORS THAT INFLUENCE OZONE CONCENTRATIONS 2-1 OZONE MONITORING DATA 2-2 OZONE ATTAINMENT STATUS 2-9 CHAPTER 3: REQUEST FOR RECLASSIFICATION INTRODUCTION 3-1 REQUIREMENTS UPON RECLASSIFICATION TO AN 3-1 EXTREME NONATTAINMENT AREA IMPACTS ON MAJOR STATIONARY SOURCES 3-3 CHAPTER 4: STAFF RECOMMENDATION 4-1 CHAPTER 5: PUBLIC PROCESS 5-1 APPENDIX A: RESPONSE TO COMMENTS A-1 Executive Summary Executive Summary The Coachella Valley is classified as a Severe-15 nonattainment area for the 1997 8-hour ozone national ambient air quality standard (NAAQS) of 0.08 ppm, with an attainment date of June 15, 2019. Over the past 15 years, the air quality in the Coachella Valley has steadily improved because of the implementation of emission control measures by South Coast AQMD and California Air Resources Board (CARB). Ozone levels in the Coachella Valley are impacted by pollutants directly transported from the South Coast Air Basin as well as pollutants formed secondarily through photochemical reactions from precursors emitted upwind. Local sources therefore have limited impact on the Coachella Valley’s ozone levels. Design values for the 8-hour ozone standard have declined from 0.108 ppm in 2003 to 0.087 ppm in 2016. However, in 2017 and 2018, higher ozone levels were experienced throughout the State of California due to changes in meteorology, biogenic emissions, and/or anthropogenic emissions. For example, 2017 and 2018 summers were particularly warm and stagnant throughout the West. As a result of the higher ozone experienced in 2017 and 2018, the Coachella Valley cannot practically attain the 1997 8-hour ozone standard by the attainment deadline of June 15, 2019. The inability to attain the standard is largely due to weather conditions that are impacting not only the Coachella Valley and the South Coast Air Basin, but the entire State of California and Western United States. Under the Clean Air Act, states and local agencies are able to voluntarily request that U.S. EPA reclassify a nonattainment area to a higher classification of nonattainment. This “bump-up” request can provide additional time for the area to reach attainment, as the new classification will have a later attainment date. However, the area would be subject to the additional requirements of the new classification. The U.S. EPA will make a finding of failure to attain the 1997 8-hour ozone standard for Coachella Valley by December 2019 unless South Coast AQMD submits a voluntary request for a reclassification to Extreme and that request is approved by the U.S. EPA. If the South Coast AQMD does not request the bump-up, the Coachella Valley would fail to attain the standard, and the South Coast AQMD would then have to adopt a rule requiring all major stationary sources to pay a nonattainment fee. In either case, the major source threshold will be lowered from 25 tons per year to 10 tons per year of NOx and VOC emissions with additional requirements under Title V and New Source Review (NSR) programs. Finally, a revision to the State Implementation Plan (SIP) will be required which will include additional measures that may reasonably be prescribed to attain the standard. Given that additional time is needed to bring the Coachella Valley into attainment of the 1997 8-hour ozone standard, staff is recommending to submit a formal request to U.S. EPA to reclassify the area from Severe-15 to Extreme nonattainment, with a new attainment date of June 15, 2024. The reclassification ensures that the Coachella Valley will be given the needed extension of the attainment date to make attainment feasible, and prevent the imposition of the nonattainment fee imposed on major stationary sources. This action will necessitate the development of a new Extreme area SIP, including an attainment demonstration with a new deadline as early as practicable but no later than June 15, 2024. Based on current modeling and existing control measures, South Coast AQMD staff anticipate that the area will be able to attain the standard by that date. The Extreme nonattainment area SIP will necessarily continue to rely on emission reductions in the South Coast Air Basin, upwind of Coachella Valley. Furthermore, the reclassification will require South Coast AQMD rule amendments to lower the major stationary source threshold for NOx and VOC from the 25 tpy to 10 tpy within 12 months after the reclassification is ES-1 Executive Summary approved by U.S. EPA. Stationary sources in Coachella Valley with a potential to emit between 10 and 25 tpy of NOx and VOC would be subject to the applicable requirements for major stationary sources in Title V permitting and NSR Programs. Based on staff’s analyses, one existing facility in Coachella Valley may be potentially impacted by these new requirements. Although the reclassification request may potentially impose additional requirements on these facilities, it will ensure that the Coachella Valley is given the needed extension of the attainment date to make attainment feasible. Moreover, the change in the major source threshold must be implemented even if reclassification is not requested and U.S. EPA makes a finding of nonattainment. ES-2 Chapter 1: Introduction 1. Introduction The Coachella Valley Planning Area is defined as the desert portion of Riverside County in the Salton Sea Air Basin, and is under the jurisdiction of the South Coast Air Quality Management District (South Coast AQMD or District). The Coachella Valley Planning Area excludes the tribal lands which are under the jurisdiction of the U.S. EPA. The Coachella Valley is the most populated area in this desert region, which encompasses several communities, including Palm Springs, Desert Hot Springs, Cathedral City, Rancho Mirage, Palm Desert, Indian Wells, La Quinta, Indio, Coachella, Thermal, and Mecca. Figure 1-1 provides a map of the area and the surrounding topography. The Coachella Valley Planning Area is located downwind of the South Coast Air Basin, which is also under the jurisdiction of South Coast AQMD. The topography and climate of Southern California combine to make the South Coast Air Basin an area of high air pollution potential. Ozone levels in the Coachella Valley Planning Area are impacted by pollutants directly transported from the South Coast Air Basin as well as pollutants formed secondarily through photochemical reactions from precursors emitted upwind with limited impact from local emission sources. While local emissions controls benefit Coachella Valley air quality, the area must rely on emissions controls being implemented upwind to demonstrate improved air quality and attainment of the federal ozone standard. FIGURE 1-1 LOCATION AND TOPOGRAPHY OF THE COACHELLA VALLEY PLANNING AREA 1-1 Chapter 1: Introduction Attainment Status of Coachella Valley for Ozone National Ambient Air Quality Standards In 1979, the U.S. EPA established primary and secondary national ambient air quality standards (NAAQS or standards) for ozone at 0.12 parts per million (ppm) averaged over a 1-hour period1. On July 18, 1997, the U.S. EPA revised the primary and secondary standards for ozone to 0.08 ppm, averaged over an 8- hour period (“1997 8-hour ozone standards”). The 1997 8-hour ozone standard was lowered to 0.075 ppm in 2008, and to 0.070 ppm in 2015. The U.S. EPA classifies areas of ozone nonattainment (i.e., Extreme, Severe, Serious, Moderate, or Marginal) based on the extent to which an area exceeds the standard. The higher the current exceedance level, the more time is allowed to demonstrate attainment in recognition of the greater challenge involved. However, nonattainment areas with higher classifications are also subject to more stringent requirements. The Coachella Valley is designated by U.S. EPA as a nonattainment area for the 2015 8-hour ozone standard of 0.070 ppm, the 2008 8-hour ozone standard of 0.075 ppm, and for the 1997 8-hour ozone standard of 0.08 ppm.
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