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HomeMy WebLinkAboutAgenda - 05-04-2004-7b1 ORANGE COUNTY BOARD OF COUNTY COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: May 4, 2004 Action Agenda Item No. ~ _~~ SUBJECT: Proposed Orange County "Air Quality Response" DEPARTMENT: ERCD Planning PUBLIC HEARING: (Y/N) No ATTACHMENT 1) Outline of Proposed Air Quality Response 1 a) Orange County Vehicle Miles Traveled (VMT), 1987 - 2001 1 b) OC Land Use Scenarios (Density and Traffic Reduction) 2) Smart Growth Activities- Public School Design 3) EPA Ozone Non-Attainment Announcement INFORMATION CONTACT: David Stancil, 245-2590 Craig Benedict, 245-2592 TELEPHONE NUMBERS: Hillsborough 732-8181 Chapel Hill 968-4501 Durham 688-7331 Mebane 336-227-2031 PURPOSE: To receive a presentation on a proposed "Air Quality Response", outlining a series of initiatives underway and/or proposed to address current and upcoming air quality issues in the County. BACKGROUND: In both recent days and over the past few years, air quality issues have increasingly become subjects demanding attention from local governments in the Triangle. This presentation is designed to provide an update on the air quality issues, and activities already underway ar planned to address these concerns. 1. On April 15, the US Environmental Protection Agency designated the Triangle region as a "non-attainment" area for ground level ozone (O ), Orange County is included as part of the region for this designation. The State is charged to address ozone mitigation strategies in an upcoming State Implementation Plan (or SIP). However, local governments can also address and implement strategies on their own. At the January 2004 retreat, the Board asked the Commission for the Environment to study other regional and local ideas and reports and address possible Orange County strategies. This report is anticipated in the fall of this year. 2. Secondly, in 2002, the County joined Chapel Hill, Carrboro and the City of Durham as members of the International Council for Local Environmental Initiatives (ICLEI) and the Cities (and Counties) for Climate Protection. As a result of this, the County (along with Chapel Hill and Carrboro) have been working an a scope of work for a Greenhouse Gas Emissions Inventory and Action Plan. Funded in part by a grant from the Durham-Chapel Hill-Carrboro Metropolitan Planning Organization (DCHC 2 MPO), a recommended consultant will be proposed to the three elected boards at the April 29 Assembly of Governments meeting to undertake this project, 3. Finally, in late 2000, a task force was formed to investigate the potential for purchase of alternative fuel and low-emission vehicles. One of the primary strategies for both ozone and greenhouse gas emissions reduction is the use of alternative fuel vehicles (such as compressed natural gas, electric, or other hybrid or dedicated alternative source fuels). The Alternative Fuel and Low Emission Vehicle (AFLEV) Work Group report in November 2000 proposed a move toward the purchase of alternative-fuel vehicles and fueling infrastructure, using a grant program from the State to offset costs. However, this grant program was essentially closed out due to the State budget crisis, and the proposed vehicle and fueling infrastructure purchases were not pursued due to local impacts from the State budget crisis, Staff has been working with new vehicle requests to consider possible alternative-fuel vehicle purchases, and with the North Carolina Department of Transportation (NCDOT) on a possible joint project for a compressed natural gas (CNG) fueling station at the maintenance yard and correctional facility in Hillsborough because of its proximity to the interstates, Anew grant program at the Federal level has been initiated to help pay for the cost difference between gasoline and alternative fuel vehicles, While distinct and separate projects, each of these local initiatives generated by the Board will serve to address air quality within the County and a more sustainable future of energy use, The Board may also wish to identify or address other local air quality measures as well, FINANCIAL IMPACT: There are no costs associated with this presentation. There would be purchase and fueling infrastructure costs associated with the purchase of alternative fuel vehicles, however, some of these costs may be offset by grants - to a degree currently unknown. Any alternative fuel vehicle purchases proposed for FY 2004-05 will be addressed in the upcoming Capital Investment Plan (CIP) and budget proposals. RECOMMENDATION(S): The Manager recommends that the Board receive this presentation as information, and offer other suggestions and proposals to address air quality as desired. /`fTTG~~mt~~~ Proposed Orange County Air Quality Response April, 2004 i. Joint Orange County-Chapel Hill-Carrboro Greenhouse Gas (GHG) Emissions Inventory and Action Plan (Underway) As members of the International Council for Local Environmental Initiatives (ICI,EI) and the Cities for Climate Protection program, the three communities are working toward the creation of an inventory of greenhouse gas emissions.. The Cities for Climate Protection Campaign goal is to reduce greenhouse gas emissions resulting from the burning of fossil fuels and other human activities. These emissions are contributing to global warming and air pollution. Actions that reduce these emissions not only protect the global climate but also improve the quality of life in our communities. Emissions reduction efforts focus on two primary greenhouse gases: C02 and methane. CO2 is released when fossil fuels -- oil, coal and natural gas -- are burned to power our cars, produce electricity or heat our buildings. Methane is emitted in urban areas when garbage and waste products decompose, primarily in landfills. There is widespread scientific agreement that the increasing quantity of these gases in the atmosphere is causing worldwide temperatures to rise and increasing the frequency and severity of extreme weather events. Local governments play a key role because they directly influence and control many of the activities that produce these emissions, Decisions about land use and development, investments in public transit, energy-efficient building codes, waste reduction and recycling programs all affect local air quality and living standards as well as the global climate.. The CCP Campaign is an opportunity for cities and counties to take practical steps which reduce greenhouse gas emissions and generate multiple benefits for their communities. The three jurisdictions are currently review qualifications from firms that replied to an RFQ, and hope to have a recommendation for the elected boards to consider soon. Around 50% of the funding for the project is coming from the Durham-Chapel Hill- Carrboro Metropolitan Planning Organization. 2. Local Ground-Level Ozone (03) Strategies Assessment (Underway - Commission for the Environment) On April I5, the Triangle region will be designated as a "non-attainment" area for the new ground-level ozone (O,) air quality standard. The new Federal (USEPA) ozone standard was adjusted in 2002 to reflect an 8-hour measurement, The Triangle is one of four areas in North Carolina and a number of areas nationally that would be non-attainment under the new EPA rules. Air pollution from ground- level ozone has been shown to have detrimental effects on public health; damaging lung tissue and aggravating or increasing susceptibility to respiratory disorders such as asthma.. Ground-level ozone is a major air pollution problem in many American metropolitan regions. The primary sources of emissions contributing to 03 are 4 vehicle and other internal combustion engines, electric utilities and other Fuel- burning or solvent-using industries, consumer use of various paints and solvents, and some natural sources. Being designated non-attainment means that summertime ozone levels within the Triangle have exceeded the new standards, and this designation will trigger a series of more-restrictive requirements for permits for new large industrial sources, and requires that all new transportation plans must demonstrate that they will not worsen air quality, If regional transportation plans fail to conform, Federal transportation dollars are withheld and transportation projects put on hold (except for projects that help achieve improved air' quality, potentially including projects such as pedestrian, bicycle and transit options).. Triangle .J Council of Governments has formed an Air Quality Committee (Attachment 1) to look at the issue from a regional perspective. In 2003, Wake County created a local report of their own to assess local strategies that Wake County could implement and suggest to address ozone: At the January .31 BOCC retreat, the Board asked the Commission for the Environment to proceed with plans to evaluate the regional and Wake County program and report back on potential Orange County ozone air quality measures. .3. Purchase of Alternative Fuel and Low->;mission Vehicles (Partially Underway, New Initiatives Proposed) In April 2000, the Alternative Fuel and Low Emission Vehicle (AFLEV) Work Group completed a year-long study of alternative fuel technologies and the evaluation oflow-emission vehicles -and how these could be incorporated into the County vehicle fleet. The report identified a mix of Compressed Natural Gas (CNG), and electric vehicles as viable options, as well as the continuation of purchasing ethanol-compatible (E85) vehicles. The report proposed a grant submittal to the N.C. Mobile Source Emission Reduction Grant program for the purchase of CNG and electric vehicles and refueling stations, A grant was submitted in the fall of 2000 for the cost differential on four CNG and one electric vehicle and a CNG fueling station, but the State budget crisis and later a focus on larger-scale refueling centers eliminated this funding source.. Additionally, the trickle-down effect of the State budget crisis delayed the purchase of many replacement vehicles for' the County fleet, In the meantime, the County has continued to purchase alternative-fuel-compatible vehicles and low-emission vehicles where possible, To date, 22 E85-compatibale vehicles have been purchased f'or the County vehicle fleet. _ low-emission vehicles have also been purchased to date. Preliminary discussions about CNG fueling stations have been held with Public Works and NCDOT staff about the possibility of a CNG fueling station in Hillsborough, or near the confluence of I-85 and I-40. Specifically, the NCDOT maintenance yard and Department of Corrections facility has been identified as a prime site for a fueling station due to its proximity to the interstates and its position equidistant between Greensboro and Raleigh, The Town of Chapel I-Iill now has I I CNG vehicles and two electric vehicles, and is using biodiesel in many of its diesel vehicles. The Town has plans to convert their vehicle fleet almost exclusively to alternative fuels, Chapel Hil] has an existing CNG fueling station and has in the past expressed interest in a future joint arrangement with Orange County and other public agencies in joint use arrangements. The new Town Operations Center on Millhouse Road is planned to contain fast-fill CNG, biodiesel and ethanol (E85) fueling stations, as well as electric changing pads. Orange County Staff is currently assessing the replacement vehicle schedule for candidates for' alternative-fuel vehicles if fueling arrangements can be made, The County is continuing to target low-emission vehicles for all purposes, where practical. Staff would also like to further engage the NCDOT and the Town of Hillsborough regarding a CNG fueling station in Hillsborough. 4. Land Use -Transportation -Air Quality The foundation of the updated Comprehensive Plan Land Use Element is "sustainability", the preservation of our air', water, and human resources for the future by not overburdening the natural and human-made limitations of our environment. The largest contributor to an unsustainable pattern of growth is "sprawl". Awell-planned land use program can control negative effects associated with sprawl. Sprawl results in: 1. more traffic; 2, more accidents; 3. more pollution (water & air); 4, higher taxes; 5. less efficient public services provision; and 6. lower quality of life Through the update to the county's Comprehensive Plan Land Use Element, the County Commissioners will be considering, among other items, growth management tools designed to reduce the negative impacts associated with sprawl. The existing residential development pattern, guided by existing zoning, does not create any locational guidance to promote development closer to urban areas and primary transportation routes.. Therefore, a relatively high-density sprawl pattern is created which results in longer commute times, high Vehicle Miles Traveled (VMT), and air pollution. Zoning amendments to channel higher concentrations of housing and population closer to major transportation routes, employment centers, and urban services will greatly reduce all of the negative impacts of sprawl, including air pollution, According to estimates completed by the Orange County Planning and Inspections Department, limiting density in the rural areas of the county could reduce future VMT by as much as 58% at build-out. The reduction of traffic tluough an anti-sprawl land use program is a proactive solution to reduce vehicular contributions to air pollution. Secondarily, energy efficient, lower pollution vehicles will further reduce pollution. Please see Attachment la -Orange County Vehicle Miles Traveled (VMT), 1987 - 2001; and Attachment lb - OC Land Use Scenarios (Density and Traffic Reduction) 5. Other? • Measurement/assessment ofozone levels within Orange County (lack of ozone monitor)? • Other? . ,-~ H .. O .~ W O ~ LOOZ ~ ' OOOZ 0 6661 N o `~' ~ ~ 8661 ~ ~ U L661 - ~ ~ r ~. ,..~ o , ~ 9661 Z ~' 5661 T ~ ~ ~ ~ ~b661 V d > 8661 W t3 > 2661 'Q E- 1661 DC - ~ ~ 0661 ._ ~ 6861 ~ ~ 8861 v ~ ~-' L861 > 0 ~ 0 0 0 0 0 0 0 0 d ' c~ '~ C' 7 N N r ~- iwn ~n ~a i~~ol 0 OC Land Use Scenarios Chart 2/3 (Density and Traffic Reduction) Density Amendment 500,000 400,000 300,000 200,000 100,000 0 GS1 OPopulalion ®DwellingUnits Traffic Product Chart 1,200,000 1,000,000 800,000 600,000 400,000 200,000 0 GS3 GS1 GS3 All values are at build out (BO) GS1-Growth Scenario 1 (Existing Density): 470,000 POP - 120,000 = 350,000 / 63 YR BO = 5555 POP/YR 2364 DUS/YR GS3-Growth Scenario 2 (Targeted Density): 300,800 POP - 120,000 = 180,800 142 YR BO = 4300 POP/YR 1832 DUS/YR ~~~~ti~~,~ ~ ~ SMART GROWTH ACTIVITIES PUBLIC SCHOOL DESIGN Orange County and its school districts are recognizing the benefits of using smart growth principles to build and renovate schools to meet the needs of the community. Smart growth can positively affect students, parents, teachers and administrators now and in the future. Schools are among our most important institutions, and can reflect and support important community values, Smart Growth schools can: Inspire our ,youth to embrace a wa,y of life that preserves resources and creates and maintains a sustainable legacy Develop greater community involvement • Improve environmental quality Improve student health Improve academic achievement Save money Improve safety Since World War 1! private sector development has followed the inefficient and costly pattern of 'sprawl' growth. This pattern, to a large degree, has become ingrained in the behavior of most people as they conduct their daily activities and has driven school district facility planning. This unconscious system of greater and greater reliance on automobiles has directly led to air pollution and health problems and indirectly led to higher taxes, and to loss of time and reduced quality of life. Alternative transportation methods to reduce traffic are the primary off-site community-wide initiatives. 1. TRANSPORTATION A. MASS TRANSPORTATION B STUDENT DRIVING AND HEAL TH O ROAD AND PEDESTRIAN OIROULA TION AND IMPROVEMENTS D TEOHNOLOGYIINNOVA TION II. ENVIRONMENT AND AIR QUALITY A. STORMWA TERANA TER QUALITY 8. ENVIRONMENTAL MITIGATION C SITE PLANNING ATTRIBUTES III. COMMUNITYAWARENESS IV. MIXED USE G: ,AJminisu~uli~c Un („issic S~huuL;Sinnn Gu~~~ih P:~6c i? rd /7~~ir~re~.~ ~ ~~ Greater Triangle Regional Council AIR QUALITY IN THE TRIANGLE REGION EXECUTIVE SiJMMARY In Mazch 2002, the GTRC identified that the Triangle was in violation of the federal 8-hour standazd for ground-level ozone and would be designated nonattainment of this standazd by the USEPA on April 15, 2004. In June 2003, GTRC formed an air quality task force to promote and coordinate strategies tc improve air quality in the Triangle region of North Cazolina. The GTRC asked the North Carolina Division of Air Quality (NCDAQ) to provide a report that would inform GTRC and Triangle community members about the current and projected status of air quality and air pollution control in the greater Triangle region. The full report is available at the GTRC website; www.triangleregion.org or the NCDAQ website, www.ncair.org. Cleaning up the air is a complex and cosily challenge. The region's failure to meet national air quality standards affects its physical, environmental and economic health, Dirty air increases health Gaze costs, causes deaths, harms the environment; impedes transportation projects, and makes it difficult to attract and retain businesses and residents, drives up the costs of doing business and the cost of living through increased regulations. The report focuses an ozone because it is the pollutant of greatest concern, from both a health and regulatory perspective, at this time. However, NCDAQ is algo concerned about fine particle levels in the Triangle, which are currently meeting the federal standard but aze close to the level of the standard, Fine particles pose a potentially serious health risk to some members of the public, and aze addressed in the report. The report discusses: (1) the levels, health risks, and sources of ground-level ozone and fine particles; (2) current and proposed state and federal controls on emissions contributing to these pollutants; (3) current and projected future levels of ozone precursor emissions; and (4) actions needed to sustain good air quality in future yeazs. The emissions data presented in this report are for the 8 county nonattainment designated region comprising Chatham, Durham, Franklin, Granville, Johnston, Orange, Person, Wake counties. The North Carolina Division of Air Quality is a division of the North Carolina Department of Environment and Natural Resources (NCDENR). NCDAQ is responsible for protecting and improving outdoor air quality in North Cazolina. To carry out this mission, NCDAQ has programs for monitoring air quality, pernutting and inspecting air emissions sources, and educating and informing the public about air quality issues. NCDAQ also enforces state and federal air pollution regulafions. For more information on NCDAQ programs, please visit the NCDAQ website at www.ncair.org. Overview of Air Quality in the Triangle: Outdoor air quality in the United States is regulated by the U.S, Environmental Protection Agency (EPA) under the authority of the federal Clean Air Act. The EPA sets National Ambient Air Quality Standazds (NAAQS) for six "criteria pollutants" that aze considered harmful to human health and the environment: cazbon monoxide, lead, ozone, nitrogen dioxide, particulate matter and sulfur dioxide. Particulate matter is fiuther classified into two categories: PM 10, or airborne particles with diameters of 10 micrometers or less, and PM 2.5, airborne particles with diameters of 2.5 micrometers or less, Levels of a pollutant above the health-based standazd pose a risk to human health. The North Carolina Division of Air Quality monitors levels of all six criteria pollutants in the Triangle region and reports these levels to the EPA. According to the most recent data, the Triangle region is meeting national ambient standards for five of the pollutants, but is not meeting the federal 8-hour standard for ground-level ozone. Therefore ozone is the pollutant of greatest concern in the Triangle at this time. Ozone-forming pollutants are volatile organize compounds (VOC) and nitrogen oxides (NOx). In the Triangle a lazge portion of VOCs is produced by natural sources, primarily trees. Major sources of man-made VOCS include unburned gasoline fumes evaporating from gas stations and cars, industrial emissions and consumer/industrial products such as paints and solvents. Nitrogen oxides aze produced when fuels aze burned, and result from the reaction of atmospheric nitrogen at the high temperatures produced by burning fuels. Major sources of NOx are highway motor vehicles, coal-fired power plants, and off-road vehicles such as construction equipment, lawn caze equipment, trains, airplanes and motorboats, North Carolina and the Triangle are considered to be Nox-limited, meaning that reducing NOx emissions is believed to be the most effective way to reduce ozone levels. Therefore, current ozone strategies focus on reducing NOx, Ozone Health Effects: When we breathe ozone, it irritates our lungs and respiratory passages. Long-term and repeated exposure to ozone concentrations above the NAAQS can result in reduction of lung function as the cells lining the lungs are damaged. Short-term, infrequent exposure to ozone can result in throat and eye imtation, difficulty drawing a deep breath, and coughing. Long-term and repeated exposure to ozone concentrations above the NAAQS can result in reduction of lung function as the cells lining the lungs ate damaged. Repeated cycles of damage and healing may result in scarring of lung tissue and permanently reduced lung function. Health studies have indicated that high ambient ozone concentrations may impair lung function growth in children, resulting in reduced lung function in adulthood. In adults, ozone exposure may accelerate the natural decline in lung function that occurs as part of the normal aging process. Ozone may also aggravate chronic lung diseases such as emphysema and bronchitis and reduce the immune system's ability to fight off bacterial infections in the respiratory system. Asthmatics and other individuals with respiratory disease are especially at risk from elevated ozone concentrations. l~ Asthmatics and other individuals with respiratory disease are especially at risk from elevated ozone concentrations. Asthmatics aze more severely affected by the reduced lung function and irritation that ozone causes in the respiratory system, Ozone may also contribute to the development of asthma. All children aze at risk from ozone exposure because they often spend a large part of the summer playing outdoors, their lungs are still developing, they breathe mare air per pound of body weight, and they are less likely to notice symptoms. Children and adults who frequently exercise outdoors are particulazly vulnerable to ozone's negative health effects, because they may be repeatedly exposed to elevated ozone concentrations while breathing at an increased respiratory rate. Numerous sttrdies have found correlation between elevated ground-level ozone concentrations and increased hospital admissions and emergency room visits for respiratory symptoms. These health effects are associated with increased monetary and societal costs: Ozone's adverse health effects also result in missed school days and last productivity, as parents take time from work to caze for children with respiratory problems. Nonattainment Designation and Regulatory Schedule When an area in North Cazolina is designated nonattainment, the NCDAQ must submit a State Implementation Plan (SIP) to the EPA, describing how pollution will be reduced to levels meeting the standazd. The SIP must include specific control measures for pollutant sources, and DAQ must demonstrate, through computer modeling results, the reductions expected from each control measure. The SIP is usually due to EPA three years after the date of nonattainmeat designation, For 8-hour ozone nonattainment, EPA requires that three regulatory measures be implemented in addition to those control measures included in the SIP: transportation conformity, general conformity, and new source review. Under transportation confornty, transportation planning agencies must demonstrate that planned road infrastructure expansion (new roads, road widening, etc.) will not result in vehicle NOx emissions over the level allowed by the SIP. If this cannot be shown, the azea loses federal highway construction funds. The general purpose of transportation conformity is to ensure that federal funds do not contribute to degraded air quality in a nonattainment azea. Under general conformity, other emission sources using federal funds or requiring a federal action such as approval of a permit, e.g, airports, must demonstrate that modifications will not result in emissions exceeding the SIP budget. Under new source review, any new emitting industry wishing to locate within the nonattainment azea, or any existing industry wishing to expand its operation, faces stringent permit requirements, Because new paint sources and major expansion projects at existing sources cannot increase emissions in the nonattainment area, new or expanding industry will need to purchase emissions credits from other industry in the azea. The practical implication of this measure is that many industries will not locate within a nonattainment azea because the new source review requirements increase the cost of doing business when compazed to an attainment azea, 13 NCDAQ anticipates that the 8-hour ozone SIP will be due to EPA in 2007, and the yeaz ozone concentrations in the Triangle must meet the standazd will be 2010, Future Needs and Long-Term Goals Although technological improvements such as power plant controls and cleaner vehicles will improve air quality a great deal, action is needed to maximize the benefits from these controls, make sure air quality is improved sooner rather than later, and ensure that the benefits of controls are retained into the future. The Triangle's most urgent immediate need is to identify an organization to serve as the region's coordinating body on air quality issues. The organization would provide education, outreach and serve as a cleazinghouse to coordinate air quality activities. Its mission would be to serve as the umbrella organization that helps the region understan$ the implications of air pollution on the Triangle's quality of life and economy. It would bring regional stakeholders together to share resources and garner support to reach air quality compliance to meet EPA requirements, and to make clean air a priority for the future. Vehicle miles traveled (VMT) will continue to increase. The current rate of North Cazolina VMT increase, as well as EPA national projections, suggests that VMT will continue to increase at a rate of 2 to 3 percent annually, Given a 2% annual increase, VMT in Wake County will more than double between 2004 and 2031. This growing VMT will decrease the air quality benefits from vehicle emission controls, add to transportation infrastructure expense, and increase the conversion of open space to streets and highways. There will also be a significant impact on quality of life, as people spend more time in their cars, drive longer distances, and experience greater traffic congestion, The most pressing future need is reduction of VMT through local and regional growth planning. "Smart Growth" or sustainable development principles such asmixed-use development, brownfields redevelopment, neighborhood schools, higher density (where appropriate), and transit-oriented development will reduce VMT and may significantly improve quality of life in our communities. Better public transit infrastructure is needed and should be tied to growth planning to co~locate greater residenfial densities, businesses, and transit. Businesses should be encouraged to locate near residential centers and transit infrastructure. In other words, we will continue to grow, but our challenge is to grow efficienfly. Green building techniques also hold much promise for increasing energy efficiency, decreasing pollution from electricity generation, and reducing energy casts far building owners and tenants. Governments and private industry are encouraged to use green building techniques and energy efficiency measures whenever passible. Many of these decisions must occur at the local level, and jurisdictions within a region must cooperate to maxirri?e the benefits of sustainable development practices. Cleaning up the air will require regional cooperation and action by the local governments, the state, the IJSEPA, businesses, community-based organizations and individual citizens, There won't be acne-time solution. Cleaning the air also requires commitment from all of us to change our behaviors, even without a formal government program requiring us to do so. Each of us who live and work in the Triangle region must ultimately realize that we contribute to the problem, frequently for the sake of personal convenience, and that we can improve the quality of the air through our personal actions,