Indirect Source Review Guidelines:Thresholds of Significance

FRAQMD Indirect Source Review Guidelines

Adopted July 6, 1998 by the FRAQMD Board of Directors

TABLE OF CONTENTS

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INTRODUCTION

Letter from the Chairman, FRAQMD Board of Directors

I. BACKGROUND

Purpose

Pollutants Affecting FRAQMD’s Air Quality

Health Effects of Air Pollution

Meteorology and Air Quality in the NSVAB

Attainment Status

II. INDIRECT SOURCE REVIEW

Indirect Sources Defined

Environmental Review Process

Impact Evaluation Criteria

III. MITIGATION MEASURES

IV. DEFINITIONS

TABLES

Table 1: FRAQMD Attainment Status

Table 2: Significance Thresholds

Table 3: Sample Project Sizes and Associated Emissions

I. BACKGROUND

Purpose

The purpose of these guidelines is to provide a means to identify development projects that may have a significant adverse effect on air quality. This document also provides mitigation measures developers can use to reduce the air quality impacts of their projects. Identification of significant air quality impacts and mitigation in the initial stages of the development process will allow time for design changes for air quality mitigation. The intent of this document is fulfilled if the air quality impact of a conceptual project design is quickly estimated, and mitigation measures are incorporated into the project, prior to formal application submittal. [top]

Pollutants Affecting FRAQMD’s Air Quality

Ozone - Ozone is the main component of photochemical smog. Ozone is not emitted directly into the air, but is formed through a series of chemical reactions involving other compounds that are directly emitted. These directly emitted pollutants (also known as ozone precursors) include reactive organic gases (ROG) and nitrogen oxides (NOx). The time period required for ozone formation allows the reacting compounds to spread over a large area, producing a regional pollution problem. Ozone problems are the cumulative result of regional development patterns, rather than the result of a few significant emission sources.

Once formed, ozone remains in the atmosphere for one to two days. Ozone is then eliminated through chemical reaction with plants (reacts with chemical on the leaves of plants), rainout (attaches to water droplets as they fall to the earth) and washout (absorbed by water molecules in clouds and later fall to the earth with rain).

Particulate Matter Less than 10 Microns in Diameter (PM10) - In Yuba and Sutter Counties, PM10 emissions are generated by a variety of sources. The primary sources of PM10 are entrained road dust, farming operations, and agricultural burning.

Traffic generates particulate matter and PM10 emissions through entrainment of dust and dirt particles that settle onto roadways and parking lots. PM10 is also emitted by burning wood in residential woodstoves and fireplaces and open burning of residential and agricultural wastes. [top]

Health Effects of Air Pollution

Ozone - Ozone is a public health concern because it is a respiratory irritant that increases susceptibility to respiratory infections. Ozone causes substantial damage to leaf tissues of crops and natural vegetation and damages many materials by acting as a chemical oxidizing agent.

Airborne Dust (PM10) - Health concerns associated with suspended particles focus on those particles small enough to reach the lungs when inhaled. Few particles larger than 10 microns in diameter reach the lungs. Ambient PM10 standards are designed to prevent respiratory disease and protect visibility. [top]

Meteorology and Air Quality in the Northern Sacramento Valley Air Basin

FRAQMD is part of the Sacramento Valley Air Basin (SVAB). The SVAB includes the counties of Butte, Colusa, Glenn, Sacramento, Shasta, Sutter, Tehama, Yolo, and portions of Placer and Solano. The SVAB is bounded on the north by the Cascade Range, on the south by the San Joaquin Valley Air Basin, on the east by the Sierra Nevada, and on the west by the Coast Range.

Summer conditions are typically characterized by high temperatures and low humidity, with prevailing winds from the south. Summer temperatures average approximately 90° F during the day and 50° F at night.

Winter conditions are characterized by occasional rainstorms interspersed with stagnant and sometimes foggy weather. Winter daytime temperatures average in the low 50s and nighttime temperatures average in the upper 30s. During winter, north winds become more frequent, but winds from the south predominate. Rainfall occurs mainly from late October to early May, averaging 17.2 inches per year, but varies significantly each year.

In addition to prevailing wind patterns that control the rate of dispersion of local pollutant emissions, Yuba and Sutter counties experience two types of inversions that affect the air quality. The first type of inversion layer contributes to photochemical smog problems by confining pollution to a shallow layer near the ground. This occurs in the summer, when sinking air forms a "lid" over the region. The second type of inversion occurs when the air near the ground cools while the air aloft remains warm. These inversions occur during winter nights and can cause localized air pollution "hot spots" near emission sources because of poor dispersion. [top]

Attainment Status

The efforts of the District are focused primarily on attainment of state and federal standards for ozone and PM10, and maintaining the standards for all criteria pollutants. Table 1 indicates the attainment status of the District for the criteria pollutants.

Federal Standards - The District (with the exception of southern Sutter County) was classified as a transitional/non-attainment area under the federal one-hour standard for ozone. However, U.S. EPA has recently rescinded the one-hour standard, and replaced it with a more stringent eight-hour standard. The District has yet to receive a classification for the eight-hour standard. The exception is the portion of Sutter County south of Subaco Road. That area is part of the Sacramento Air Quality Maintenance Area, which is classified as a severe ozone nonattainment area.

The District is a designated attainment area for the federal PM10 standards.

State Standards - The District is a designated nonattainment area for the California standards for ozone and PM10.

TABLE 1: FRAQMD ATTAINMENT STATUS

Pollutant	Federal Standards	California Standards
Ozone	Severe Nonattainment: Southern Sutter County. No classification: Entire District under the new eight-hour standard.	Nonattainment
Carbon monoxide	Unclassified^a	Unclassified
PM10	Attainment	Nonattainment
Sulfur dioxide	Unclassified	Unclassified
Nitrogen dioxide	Unclassified	Unclassified

a Unclassified means that there is insufficient data to determine attainment status. Areas designated as unclassified are assumed to be in attainment for that pollutant. [top]

II. INDIRECT SOURCE REVIEW

Indirect Sources Defined

An indirect source is any land use that generates or attracts vehicular activity which results in pollutant emissions. The California Air Resources Board (CARB) defines indirect sources as "any facility, building, structure or installation, or combination thereof which generates or attracts mobile source activity that results in the emissions of any pollutant for which there is a state ambient air quality standard." (California Clean Air Act Guidance for the Development of Indirect Source Control Programs, 1990, App.A, p.2.)

Other types of sources addressed in these guidelines are small stationary sources and area sources. There are two types of stationary sources: those the District allows by permit and those that are exempt from the District’s permitting authority. Most emissions from permitted stationary sources are controlled or offset prior to operation. Unpermitted stationary source emissions are from sources such as small bakeries, restaurants and smaller stationary internal combustion engines. Emissions from area-wide sources are largely uncontrolled and include such things as fireplaces, water heaters, lawn mowers and barbecues. Area-wide source emissions are sometimes reduced through technological advances or product changes by the manufacturer, usually induced by legislation or regulation. [top]

Environmental Review Process

As a Responsible Agency, and as a Review Agency under the California Environmental Quality Act (CEQA), the District has a responsibility to protect present and future air quality. The environmental review process conducted by the District includes:

	Quantification of direct and indirect emissions generated by the proposed project.
	Assessment for potential emissions of toxic or hazardous air pollutants.
	Assessment for project conformance with local, state, and federal rules and regulations.
	Determination of the effectiveness of proposed mitigation measures. [top]

Impact Evaluation Criteria

These Guidelines establish air quality thresholds for indirect sources that, when exceeded, would be considered potentially significant impacts to air quality. The thresholds are consistent with the District’s New Source Review Rule (Rule 10.1), which applies to stationary sources. Projects that would trigger the thresholds in these Guidelines are those which would generate 25 pounds per day of ROG or NOx, or 80 pounds per day of PM10, or greater (as calculated by the District). In order to mitigate project impacts to air quality, the Guidelines include suggested mitigation measures (Section III, Mitigation Measures). Developers should coordinate with the appropriate planning agency to identify feasible mitigation measures.

In general, projects that substantially contribute to existing violations of state or federal air quality standards are considered to have a significant adverse impact on air quality. While projects which generate less than 25 pounds per day of pollutants are considered to result in a detrimental impact to air quality, they are unlikely to be determined to be significant adverse air quality impacts, particularly with incorporation of mitigation measures. This is generally due to the small nature of the project.

The project-specific significance thresholds (Table 2, Significant Impact Thresholds) are intended for use as a guide rather than strict, absolute values. If preliminary analysis of a project indicates projected emissions are near the threshold, the project would be considered potentially significant. This determination would trigger a refined emissions analysis, exploration of any mitigating characteristics of the project or site, and identification of feasible mitigation measures to reduce the impact to a less than significant level. Depending on factors specific to the project, the lead agency for the project may determine that an environmental impact report may be necessary under the California Environment Quality Act (CEQA). [top]

TABLE 2: SIGNIFICANT IMPACT THRESHOLDS

NOx	ROG	PM10
25 lbs/day	25 lbs/day	80 lbs/day

Table 3 (Sample Project Sizes and Associated Emissions) illustrates various project types and sizes that would approach the District thresholds of significance. To illustrate, a project comprised of 97 single family homes would approach the threshold of 25 pounds per day of ROG, but it would take approximately 4,000 single-family homes to approach the 80 pound per day threshold for PM10. The District uses the latest version of Emfac to calculate mobile source emissions.

TABLE 3: SAMPLE PROJECT SIZES AND ASSOCIATED EMISSIONS

Land Use	Unit of Measure	Significance Thresholds Emissions (lbs/day)^a
		ROG:25	NOX:25	PM10:80^b
		Project Size (in GSF, GLA, D.U.)
Light Industrial	1000 GSF	143	156	4,000
Single Family Homes	D.U.	97	119	4,000
Apartment	D.U.	136	167	4,000
Elementary School	1000 GSF	101	109	2,667
Small Office Building	1000 GSF	52	57	1,600
Supermarket	1000 GLA	6	7	195
Community Shopping Ctr.	1000 GLA	21	22	615
Fast-Food (no drive-thru)	1000 GSF	1	2	44
Quality Restaurant	1000 GSF	12	12	348
Walk-In Bank	1000 GSF	8	9	242

GSF = Gross Square Feet; GLA = Gross Leasable Area; D.U. = Dwelling Unit
^aEmissions based on CARB’s EMFAC7F1.1, URBEMIS5: For a weighted fleet mix; average trip length 10 miles; speed 30 MPH; summer,temperature 90° F.
^b Urbemis 5 calculates PM10 for exhaust and tire wear only; the model does not currently calculate re-entrained road dust for paved or unpaved roads. [top]

III. MITIGATION MEASURES

The mitigation measures in these guidelines are transportation and land use control measures. They are intended to reduce dependency on the automobile for mobility, and mitigate the air quality impacts of new development. Indirect source mitigation measures facilitate walking, bicycling, transit use and other alternative transit modes by making them safe and easy to use. Supplemental mitigation measures should be considered for all projects that trigger significance thresholds.

	STANDARD MITIGATION MEASURES APPLICABLE TO ALL PROJECTS
	The following mitigation measures apply to all projects approved within the jurisdiction of the Feather River Air Quality Management District. The developer should:
1.	Provide for the use of energy-efficient lighting and process systems such as, low-NOx water heaters, furnaces, and boiler units.
2.	Incorporate the use of non-toxic soil stabilizers according to manufacturer’s specifications to all inactive construction areas.
3.	Prior to final occupancy, reestablish ground cover on the construction site through seeding and watering.
4.	All grading operations on a project shall be suspended as directed by the Air District when winds exceed 20 miles per hour.
5.	All newly installed wood burning devices shall be EPA Phase II certified.
6.	Streets shall be designed to maximize pedestrian access to transit stops where feasible.
7.	Large residential, commercial, and industrial projects should include bus shelters at transit access points where deemed appropriate by Yuba-Sutter Transit Authority.
8.	Provide temporary traffic control as needed during all phases of construction to improve traffic flow, as deemed appropriate by the Department of Public Works and/or Caltrans.
9.	Construction activities shall minimize disruptions to traffic flow during peak hours to the greatest feasible extent.
10.	Construction sites shall be watered as directed by the Department of Public Works or Air Quality Management District.
11.	All trucks hauling dirt, sand, soil, or other loose material should be covered or should maintain at least two feet of freeboard (i.e., minimum vertical distance between top of the load and top of the trailer) in accordance with the requirements of California Vehicle Code Section 23114. This provision shall be enforced by local law enforcement agencies.
12.	Paved streets shall be swept (water sweeper with reclaimed water recommended) at the end of each day if substantial volumes of soil material have been carried onto adjacent paved, public roads from the project site.
13.	Wheel washers shall be installed where project vehicles and/or equipment exit onto paved streets from unpaved roads. Vehicles and/or equipment shall be washed prior to each trip. [top]

	SUPPLEMENTAL MITIGATION MEASURES FOR RESIDENTIAL PROJECTS
	In addition to implementation of all applicable Standard Mitigation Measures, the developer should implement mitigation measures listed below to the extent deemed appropriate and feasible by the developer and planning department.
1.	Contribute to traffic-flow improvements (i.e., right-of-way, capital improvements, etc.) that reduce traffic congestion and do not significantly increase roadway capacity.
2.	Equip residential structures with electric outlets in the front and rear of the structure to facilitate use of electrical lawn and garden equipment.
3.	Provide for, or contribute to, dedication of land for off-site bicycle trails linking the project to designated bicycle commuting routes in accordance with the regional Bikeway Master Plan.
4.	Contribute to the provision of synchronized traffic signals on roadways impacted by the project, and as deemed necessary by the Department of Public Works.
5.	Provide transit amenities e.g., bus turnouts, passenger benches, and shelters as demand and service routes warrant subject to review and approval by local transportation planning agencies.
6.	Provide/Contribute to pedestrian access between bus service and major transportation points within the project where deemed feasible.
7.	Include neighborhood park(s) or other recreational options such as trails, within the development to minimize vehicle travel to off-site recreational and/or commercial uses.
8.	Include installation of solar water heaters for at least 25 percent of the residential units.
9.	Incorporate mixed uses, where permitted by local development regulations, to achieve a balance of commercial, employment, and housing options within the project site.
10.	Include neighborhood telecommunications/telework center.
11.	Use available emissions offset credits. [top]

	SUPPLEMENTAL MITIGATION MEASURES FOR COMMERCIAL PROJECTS
	In addition to implementation of all applicable Standard Mitigation Measures, the developer should implement mitigation measures listed below to the extent deemed appropriate and feasible by the developer and planning department.
1.	Contribute to traffic-flow improvements (i.e., right-of-way, capital improvements, etc.) that reduce traffic congestion and do not significantly increase roadway capacity.
2.	Provide preferential parking spaces for carpools and vanpools.
3.	Incorporate transit-use incentives such as subsidized transit passes and flexible work schedules to encourage transit use and trip reduction.
4.	Use of clean fuel vehicles in vehicle fleet.
5.	Provide onsite shower/locker facilities for bicycling and pedestrian commuters.
6.	Construct/Contribute to bicycle and pedestrian facility improvements such as trails linking commuter routes as identified in the Yuba Sutter Bikeway Master Plan.
7.	Provide ancillary services within walking distance of the project (no further than 1,500 feet) such as cafeterias, health clubs, automatic tellers, post office etc., as appropriate and in compliance with local development regulations.
8.	Contribute to construction of off-site park and ride lots as deemed feasible and appropriate by Yuba and Sutter transportation planning agencies.
9.	Provide onsite child care and after-school facilities or contribute to off-site construction of such facilities within walking distance of the project.
10.	Provide onsite pedestrian facility enhancements such as walkways, benches, proper lighting, vending machines, and building access which is physically separated from parking lot traffic.
11.	Feature alternative work schedules, where practical, that allow for work hours that are compressed into fewer than five days (e.g., 9/80; 4/40; or 3/36 hour schedules); or allow Flextime schedules.
12.	Provide transit amenities e.g., onsite/offsite bus turnouts, passenger benches, or shelters where deemed appropriate by local transportation planning agencies.
13.	Contribute to the provision of synchronized traffic signals on roadways impacted by the project, and as deemed necessary by the Department of Public Works.
14.	Install solar water heaters for at least 25 percent of the building floor area.
15.	Incorporate mixed uses, where permitted by local development regulations, to achieve a balance of commercial, employment, and housing options within the project site.
16.	Provide video conferencing facilities.
17.	Commitment to support programs which include Guaranteed Ride Home, Subsidized Transit Passes, and Rideshare Matching.
18.	Use available emissions offset credits.
19.	Provide transportation (e.g., shuttles) to major transit stations and multi-modal centers. [top]

Note: Other comparable mitigation measures may be used in lieu of, or in conjunction with, the mitigation measures presented in this document. Additional mitigation measures should be reviewed by the Feather River Air Quality Management District.

IV. DEFINITIONS

ALTERNATIVE WORK SCHEDULES: Typical examples include the following:

	9/80 - Within a ten work-day period, the employee works eight 9-hour days, one 8-hour day and has one non-work day. The 9/80 program represents a 10% trip reduction.
	4/10 - The employee works four 10-hour days and has one non-work day per week. The 4/10 program represents a 20% trip reduction.
	3/12 - The employee works three 12-hour days per work week. Each 3/12 work week represents a 40% trip reduction.

DEVELOPER: Person, firm, corporation, partnership, association, or entity which proposes to subdivide or construct projects that fit within the parameters of these Guidelines.

DISTRICT: The Feather River Air Quality Management District.

EMPLOYER: Any person(s), firm, business, educational facility, non-profit agency or corporation, government agency, or other entity ~~which~~ that employs one or more persons at a work site.

FLEXTIME: Different work schedules assigned to various groups of employees. Schedules vary between 15 minutes and two hours from the conventional start-up times of 8:00am-5:00pm The schedules do not reduce trips but can contribute to reduced traffic congestion.

GUARANTEED RIDE HOME: Carpooling incentive program that provides a vehicle to the carpooling employee in the case of a personal emergency.

INDIRECT SOURCE: Any building, facility, structure or installation, or combination thereof, which generates or attracts mobile source activity that results in emissions of any pollutant for which there is a state or federal ambient air quality standard.

LOW-NOx WATER HEATER: Any natural-gas fired water heater which emits less than 40 nanograms of NOx per joule.

NONATTAINMENT POLLUTANT: Any pollutant as well as any precursors of such pollutants which has been designated "nonattainment" by the US Environmental Protection Agency in the Federal Register, or which has been designated nonattainment by the California Air Resources Board pursuant to Section 39607 of the Health and Safety Code.

NITROGEN OXIDES (NOx): The sum of nitric oxide and nitrogen dioxide.

PARTICULATE MATTER (PM10): Particulate matter with an aerodynamic diameter smaller than or equal to 10 microns.

PRECURSOR: A pollutant that, when emitted into the atmosphere, may undergo either a chemical or physical change which then produces another pollutant for which an ambient air quality standard has been adopted, or whose presence in the atmosphere will contribute to the violation of one or more ambient air quality standards.

REACTIVE ORGANIC COMPOUNDS (ROG): Any compound containing carbon except: methane, carbon monoxide, carbon dioxide, carbonic acid, metallic carbides or carbonates, ammonium carbonates, and halogenated hydrocarbons (FRAQMD Rule 10.1, New Source Review).

STATIONARY SOURCE: Any building, structure, facility, or installation that emits or may emit any criteria pollutant directly or as a fugitive emission.

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