EPA-450/3-75-025
April 1975
IMPLEMENTATION PLAN REVIEW
FOR
TEXAS
AS REQUIRED
BY
THE ENERGY SUPPLY
AND
ENVIRONMENTAL COORDINATION ACT
U. S. ENVIRONMENTAL PROTECTION AGENCY
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EPA-450/3-75-025
^
IMPLEMENTATION PLAN REVIEW
FOR
TEXAS
REQUIRED BY THE ENERGY SUPPLY AND ENVIRONMENTAL COORDINATION ACT
1
PREPARED BY THE FOLLOWING TASK FORCE:
U. S. Environmental Protection Agency, Region VI
1600 Patterson, Suite 1100
Dallas, Texas 75201
Environmental Services of TRW, Incorporated
(Contract 68-02-1385)
U. S. Environmental Protection Agency
^ Office of Air and Waste Management
:%.. Office of Air Quality Planning and Standards
o. Research Triangle Park, North Carolina 27711
APRIL 1975
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TEXAS
ENERGY SUPPLY AND ENVIRONMENTAL COORDINATION ACT
(SECTION IV - STATE IMPLEMENTATION PLAN REVIEW)
TABLE OF CONTENTS
Page
1.0 EXECUTIVE SUMMARY 1
2.0 REVIEW OF THE STATE IMPLEMENTATION PLAN AND CURRENT AIR QUALITY 7
2.1 Summary 7
2.2 Air Quality Setting for the State of Texas 12
2.3 Background on the Development of the Current State
Implementation Plan 15
2.4 Special Considerations for the State of Texas 19
3.0 AQCR ASSESSMENTS 20
3.1 Regional Air Quality 20
3.2 Statewide Fuel Use for Point Sources 21
3.3 Power Plant Assessment 21
3.4 Industrial/Commercial/Institutional Source Assessment. . . 23
3.5 Area Source Assessments 23
4.0 TECHNICAL APPENDICES
APPENDIX A A-l
APPENDIX B B-l
APPENDIX C C-l
APPENDIX D D-l
BIBLIOGRAPHY
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1.0 EXECUTIVE SUMMARY
The enclosed report is the U. S. Environmental Protection Agency's
(EPA) response to Section IV of the Energy Supply and Environmental
Coordination Act of 1974 (ESECA). Section IV requires EPA to review each
State Implementation Plan (SIP) to determine if revisions can be made to
control regulations for stationary fuel combustion sources without inter-
fering with the attainment and maintenance of the National Ambient Air
Quality Standards (NAAQS). In addition to requiring that EPA report to the
State on whether control regulations might be revised, ESECA provides that
EPA must approve or disapprove any revised regulations relating to fuel
burning stationary sources within three months after they are submitted to
EPA by the States. The States may, as in the Clean Air Act of 1970,
initiate State Implementation Plan revisions; ESECA does not, however,
require States to change any existing plan.
Congress has intended that this report provide the State with infor-
mation on excessively restrictive control regulations. The intent of ESECA
is that SIP's, wherever possible, be revised in the interest of conserving
low sulfur fuels or converting sources which burn oil or natural gas to
coal. EPA's objective in carrying out the SIP reviews, therefore, has been
to try to establish if emissions from combustion sources may be increased.
Where an indication can be found that emissions from certain fuel burning
sources can be increased and still attain and maintain NAAQS, it may be
plausible that fuel resource allocations can be altered for "clean fuel
savings" in a manner consistent with both environmental and national energy
needs.
In many respects, the ESECA SIP reviews parallel EPA's policy on clean
fuels. The Clean Fuels Policy has consisted of reviewing implementation
plans with regards to saving low sulfur fuels and, where the primary sulfur
dioxide air quality standards were not exceeded, to encourage States to
either defer compliance regulations or to revise the SOp emission regula-
tions. The States have also been asked to discourage large scale shifts
from coal to oil where this could be done without jeopardizing the
attainment and maintenance of the NAAQS.
1
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To date, EPA's fuels policy has addressed only those States with the
largest clean fuels saving potential. Several of these States have or are
currently in the process of revising S02 regulations. These States are
generally in the eastern half of the United States. ESECA, however, extends
the analysis of potentially over-restrictive regulations to all 55 States
and territories. In addition, the current reviews address the attainment
and maintenance of all the National Ambient Air Quality Standards.
There are, in general, three predominant reasons for the existence of
overly restrictive emission limitations within the State Implementation
Plans. These are: 1) The use of the example region approach in developing
Statewide air quality control strategies; 2) the existence of State Air
Quality Standards which are more stringent than NAAQS; and 3) the "hot spots"
in only part of an Air Quality Control Region (AQCR) which have been used as
the basis for controlling the entire region. Since each of these situations
affect many State plans and in some instances conflict with current national
energy concerns, a review of the State Implementation Plans is a logical
follow-up to EPA's initial appraisal of the SIP's conducted in 1972. At
that time SIP's were approved by EPA if they demonstrated the attainment of
NAAQS ior more stringent state air quality standards. Also, at that time an
acceptable method for formulating control strategies was the use of an
example region for demonstrating the attainment of the standards.
The example region concept permitted a State to identify the most
polluted air quality control region (AQCR) and adopt control regulations
which would be adequate to attain the NAAQS in that region. In using an
example region, it was assumed that NAAQS would be attained in the other
AQCR's of the State if the control regulations were applied to similar
sources. The problem with the use of an example region is that it can
result in excessive controls, especially in the utilization of clean fuels,
for areas of the State where sources would not otherwise contribute to NAAQS
violations. For instance, a control strategy based on a particular region or
source can result in a regulation requiring one percent sulfur oil to be
burned statewide where the use of three percent sulfur coal would be adequate
to attain NAAQS in some locations.
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EPA anticipates that a number of States will use the review findings
to assist them in making the decision whether or not to revise portions of
their State Implementation Plans. However, it is most important for those
States which desire to submit a revised plan to recognize the review's
limitations. The findings of this report are by no means conclusive and
are neither intended nor adequate tobethe solebasis jFqr SIP_reyision_s;
they do, however, represent EPA's_ best judgment and effort i_n_ complying
w.ii!l the ESECA requirements. The time and resources which EPA has had to
prepare the reports has not permitted the consideration of growth, economics,
and control strategy tradeoffs. Also, there has been only limited dispersion
modeling data available by which to address individual point source emissions.
Where the modeling data for specific sources were found, however, they were
used in the analysis.
The data upon which the reports' findings are based is the most
currently available to the Federal Government. However, EPA believes that
the States possess the best information for developing revised plans. The
States have the most up-to-date air quality and emissions data, a better
feel for growth, and the fullest understanding for the complex problems facing
them in the attainment and maintenance of air quality standards. Therefore,
those States desiring to revise a plan are encouraged to verify and, in
many instances, expand the modeling and monitoring data supporting EPA's
findings. In developing a suitable plan, it is suggested that States select
control strategies which place emissions for fuel combustion sources into
perspective with all sources of emissions such as smelters or other industrial
processes. States are encouraged to consider the overall impact which the
potential relaxation of overly restrictive emissions regulations for combus-
tion sources might have on their future control programs. This may include
air quality maintenance, prevention of significant deterioration, increased
TSP, NO , and HC emissions which occur in fuel switching, and other potential
X
air pollution problems such as sulfates.
Although the enclosed analysis has attempted to address the attainment
of all the NAAQS, most of the review has focused on total suspended particu-
late matter (TSP) and sulfur dioxide (SCL) emissions. This is because
stationary fuel combustion sources constitute the greatest source of SCL
emissions and are a major source of TSP emissions.
3
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Part of each State's review was organized to provide an analysis of
the SOp and TSP emission tolerances within each of the various AQCRs. The
regional emission tolerance estimate is, in many cases, EPA's only measure
of the "over-cleaning" accomplished by a SIP. The tolerance assessments
have been combined in Appendix B with other regional air quality "indi-
cators" in an attempt to provide an evaluation of a region's candidacy
for changing emission limitation regulations. In conjunction with the
regional analysis, a summary of the State's fuel combustion sources (power
plants, industrial sources, and area sources) has been carried out in
Appendix C, D, and E.
The State Implementation Plan Review has addressed the emissions from
fuel combustion sources in each of Texas' twelve AQCRs. For your convenience
a map showing Texas and its AQCRs is reproduced on page 6.
The major findings of this review are as follows:
t As required by Section IV of ESECA, the Implementation Plan
for the State of Texas has been reviewed with particular
attention to the most frequent causes of overly restrictive
emission limiting regulations. It does not appear that
regulations for TSP and SC^ are overly restrictive, however,
the formats of the regulations do not lend themselves to defin-
itive analysis of restrict!veness.
For all stationary fuel combustion sources (except steam
generators using solid fossil fuel) Texas' particulate and
S02 regulations specify a maximum ambient concentration to
be observed beyond the premises of a source and/or a
maximum time-based emission rate that depends on a variety
of source specific stack parameters. As a result, it is not
possible to determine whether the air quality observed in the
State is due to regulations which could limit the use of
certain fuels, or to an otherwise specific level of emissions.
There are indications of a widespread particulate problem
throughout the State. Air quality data, combined with current
plans for air quality maintenance in the Southern Louisiana-
Southeast Texas (106), Corpus Christi-Victoria (214), Metropolitan
Dallas-Fort Worth (215) and Metropolitan Houston-Galveston (216)
AQCRs, suggest that any increase of emissions in the State would
only aggravate the current TSP situation.
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This review finds no indication that S02 NAAQS are being
violated. However, because the restrictiveness of the
State's S02 regulation cannot be evaluated, it is not
known if Texas' low ambient SC^ levels are the result of
an overly restrictive control of emissions, a low level
sulfur content of the fuel used, or to some other factor
such as meteorology.
Though natural gas is the major fuel used in the State's
73 identified power plants, 65 of these plants also use oil
Thus, there are many sources which have the ability to
undergo fuel switches aimed at decreasing the use of
natural gas.
One power plant in Texas has the capability to use a solid
fossil fuel and/or gas. This plant used only lignite in
1973. Two additional power plants in Texas are currently
using lignite but it is unknown whether they can also use
other fuels.
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AMARILLO-
LUBBOCK
INTRASTATE
(211)
MIDLAND-
ODESSA-
SAIJ ANGELO
INTRASTATE
(218)
ABILENE-
WICHITA FALLS
METROPOLITAN
DALLAS-
FORT WORTH
INTRASTATE
SHREVEPORT-
TEXARKANA-
TYLER
INTERSTATE
(ARKANSAS-
LOUISIANA-
OKLAHOMA-
TEXAS)
(022)
EL PASO-
LAS CRUCES-
ALAMOGORDO
INTERSTATE
(TEXAS-
NEW MEXICO)
(153)
SOUTHERN
LOUISIANA-
SOUTHEAST
TEXAS
INTERSTATE
(106)
METROPOLITAN
SAN ANTONIO
INTRASTATE
(217)
AUSTIN-
WACO
INTRASTATE
(212)
METROPOLITAN
HOUSTON
GALVESTON
INTRASTATE
(216)
BROWNSVILLE-
LAREDO
INTRASTATE
(213)
CORPUS CHRISTI-
VICTORIA
INTRASTATE
(214)
Figure 1. Air Quality Control Regions in Texas
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2.0 STATE IMPLEMENTATION PLAN REVIEW
2.1 SUMMARY
A revision of fuel combustion source emissions regulations will
depend on many factors. For example:
t Does the State have air quality standards which are more stringent
than NAAQS?
0 Does the State have emission limitation regulations for control of
(1) power plants, (2) industrial sources, (3) area sources?
t Did the State use an example region approach for demonstrating the
attainment of NAAQS p_r more stringent State standards?
Has the State not initiated action to modify combustion source
emission regulations for fuel savings; i.e., under the Clean Fuels
Policy.
Are there no proposed Air Quality Maintenance Areas?
t Are there indications of a sufficient number of monitoring sites
within a region?
Is there an expected 1975 attainment date for NAAQS?
Based on reported (1973) Air Quality Data, does air quality meet
NAAQS?
t Based on reported (1973) Air Quality Data, are there indications of
a tolerance for increasing emissions?
Is the fraction of total emissions from stationary fuel combustion
sources higher than those of other sources?
Do modeling results for specific fuel combustion sources show a
potential for a regulation revision?
t Must emission regulations be revised to accomplish significant
fuel switching?
t Based on the above indicators, what is the potential for revising
fuel combustion source emission limiting regulations?
t Is there a significant clean fuels savings potential in the region?
This report is directed at answering these questions. An AQCR's potential
for revising regulations increases when there are affirmative responses to the
above.
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The initial part of the SIP Review Report, Section 2 and Appendix A,
was organized to provide the background and current situation infor-
mation for the State Implementation Plan. Section 3 and the remaining
Appendices provide an AQCR analysis which helps establish the overall
potential for revising regulations. Emission tolerance estimates have
been combined in Appendix B with other regional air quality "indicators"
in an attempt to provide an evaluation of a region's candidacy for revising
emission limiting regulation. In conjunction with the regional analysis,
a characterization of the State's fuel combustion sources (power plants,
industrial sources, and area sources) has been carried out in Appendices
C, D and E.
Based on an overall evaluation of EPA's current information, AQCRs
have been classified as "good," "marginal," or "poor" candidates for
regulations revisions. These ratings, which are shown in the Summary
Table on page 10 were determined by assessing the following criteria:
Good
1) Adequate number
of air monitoring
sites
2) No NAAQS violations
3) Attainment date of
1975 for NAAQS in
the SIP
4) No proposed AQMAs
5) Modeling results
show a potential
for revision
Poor
1) Violation of NAAQS
2) Attainment date for
NAAQS later than
1975
3) Proposed AQMA
4) Modeling results
show no potential
for regulation
revision
Marginal
1) No air quality
data or insuf-
ficient number of
monitoring sites
2) Inconsistent
"indicators"
For an AQCR to be rated as a good candidate, all of the criteria
listed under "Good" would have to be satisfied. The overriding factor in
rating an AQCR as a poor candidate is a violation of either the primary
or secondary National Ambient Air Quality Standards during 1973. However,
if any of the other conditions listed under "Poor" exists, the AQCR would
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still receive that rating. The predominant reason for a marginal rating
is a lack of sufficient air quality data. Marginal ratings are also
given when there are varying or inconsistent "indicators."
After a candidacy has been given to a region, a follow-up analysis
should be conducted depending on the rating. A region that has been indi-
cated to be a good candidate for regulation revision should be examined
in more detail by the state and the regional office of the EPA, including
an examination of current air quality, emissions, and fuel use data,
with which the state has more familiarity. If the state feels that clean
fuels could be saved in a region rated marginal, then an anlysis of air
quality data that may have become available since this report should be
examined. If current data do not indicate a potential for regulation
revision then further study would not be warranted. An AQCR that has been
indicated to be a poor candidate would not warrant further study unless
the state feels that new information has become available indicating that
the poor rating is no longer valid.
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2.2 AIR QUALITY SETTING FOR THE STATE OF TEXAS
The State of Texas is one of five states in EPA Region VI. (The others
are Arkansas, Louisiana, New Mexico and Oklahoma.) Texas is divided into
twelve AQCRs. These are listed below:
022 - (XII) - Shreveport - Texarkana - Tyler Interstate
106 - (X) - Southern Louisiana - Southeast Texas Interstate
153 - (XI) - El Paso - Las Cruces - Alamogordo Interstate
210 - (I) - Abilene - Wichita Falls Intrastate
211 - (II) - Amarillo - Lubbock Intrastate
212 - (III) - Austin - Waco Intrastate
213 - (IV) - Brownsville - Laredo Intrastate
214 - (V) - Corpus Christi - Victoria Intrastate
215 -(VIII) - Metropolitan Dallas - Fort Worth Intrastate
216 - (VII) - Metropolitan Houston - Galveston Intrastate
217 - (IX) - Metropolitan San Antonio Intrastate
218 - (VI) - Midland - Odessa - San Angelo Intrastate
The boundries of an AQCR are designed to enclose an airshed. Three of Texas'
AQCRs have boundries which cross state lines, (i.e. are interstate AQCRs).
The three digit number in the above listing has been assigned by EPA as
part of a nationwide numbering system for all AQCRs. The Roman numeral in
parentheses is used by the State of Texas for designating air quality control
regions within its boundries. So while the numbers 022, 106 and 153 correspond
to federal air quality control regions which span the boundries of more than
one state, the Roman numerals XII.X and XI correspond only to the respective
portions of those AQCRs that are within Texas. For the intrastate AQCRs, the two
numbering systems designate identical areas." The SIP uses the Roman numeral
system almost exclusively in reference to the various regions.
Tables A-l, A-2 and A-3 summarize additional general information which
characterizes the air quality, and provides other related parameters in the AQCRs.
In Table A-l the following information is presented:
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1) Priority classifications for the pollutants under study
2) Demographic data
3) Counties within the State which are proposed Air Quality
Maintenance Areas (AQMAs)
Priority classifications give an indication of the extent to which
certain pollutants pose air quality problems for the AQCR. A Priority I listing
indicates that relatively high ambient concentrations have been either observed,
estimated (in the absence of adequate measured air quality data), or predicted
(due to the expected presence of future sources). A Priority III designation
is used when pollutant concentrations are generally lower than NAAQS. A Priority
II designation indicates intermediate pollutant levels.
With respect to the pollutants under study, Table A-l shows that four of the
State's AQCRs are classified Priority I for particulates, while the rest are
Priority II. Priority I classifications for S02 apply to five AQCRs. Two
additional AQCRs are classified Priority II for this pollutant, while the
remaining five are Priority III.
The demographic characteristics of the AQCRs are included in Table A-l to
further describe the various regions.
Table A-2 presents the dates when the ambient level of the pollutants under
study is expected to be within the limits set by NAAQS. These dates were estab-
lished at the time the original SIP was approved; however, in some cases EPA
and the State are currently considering amending these dates.
A summary of the federal ambient air quality standards for the pollutants
under study is presented in Table A-3. The state's air quality standards
are stipulated under Rule 24. It is stated that the National primary and
secondary ambient air quality standards are applicable throughout the State.
Proposed Air Quality Maintenance Area (AQMA) designations are a way of
identifying those areas in the State which, due to current air quality and/or
projected growth rate, may have the potential for exceeding any national
13
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standard within the ten year period 1975-1985. These designations are
proposed by either the State, or by the Regional EPA office. If an area
ultimately becomes an AQMA, it is likely that more restrictive changes will
have to be made to existent regulations and/or air pollution control plans.
From Table A-l, it can be seen that a total of 23 counties are involved in
proposed TSP AQMAs. The four AQCRs which contain these counties are
Metropolitan Houston-Galveston (216), Southern Louisiana-Southeast Texas
(106), Corpus Christi-Victoria (214), and Metropolitan Dallas-Fort Worth
(215). There is only one county which is proposed as an AQMA for S02> and
this is Galveston County in the Houston-Galveston AQCR (216).
The data in Tables A-4 and A-5 provide a picture of the State's
recent (1973) air quality setting. Table A-4 shows particulate matter
problems with NAAQS violations occurring in every AQCR.
Those air quality levels which were reported in 1973 for SCL show low
concentrations. Though all measured 1973 values were below NAAQS, the
highest value was recorded in the El Paso-Las Cruces-Alamogordo AQCR (153).
This and one other AQCR had SCL levels that were higher than those measured
in the Example Region (Metropolitan Houston-Galveston). The Brownsville-
Laredo AQCR had no reported S09 air quality data for 1973.
C-
With regards to TSP readings in the Example Region, air quality data
measured in 1973 cannot reflect the full effect of Texas' air pollution
control strategies because final compliance to the State's emission limi-
tations was not due until December 1973.
Within Texas more than 1/3 of the State's particulate emissions are
produced by two AQCRs. These are the Texas portion of Shreveport-Texarkana-
Tyler (022) and Metropolitan Houston-Galveston (216), and each make almost
equal contributions. The most current emissions data available (namely
1972 data obtained from NEDS data bank December 1974) was used to compile
the information presented in Tables A-6 and A-7. Particulate emissions
are shown in Table A-6. No one AQCR has more than 20% of its particulate
14
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emissions derived from fuel combustion sources, and on a statewide basis,
91% of the particulates are estimated to come from sources other than
fuel combustion.
Three of the AQCRs within Texas together account for 60% of the
State's SOp emissions. These are Metropolitan Houston-Galveston (216),
and the Texas portions of El Paso-Las Cruces-Alamogordo (153) and South-
ern Louisiana-Southeast Texas AQCRs. Respectively, these areas produce
22%, 22% and 17% of the State's total S02 emissions. In most of the
State's AQCRs, fuel combustion at stationary sources also provides only
a small proportion of the AQCR's total SOp emissions. However, in the
Austin-Waco AQCR (212), stationary source fuel combustion provides 80%
of all of the SOp inventoried for that AQCR. This amount corresponds
to 7% of all SOp emissions in the State. Metropolitan Dallas-Fort Worth
is the only other AQCR in which fuel combustion, from stationary
sources provides greater than 20% (27.7%) of the AQCR's
total SOp emissions. Statewide, 89% of the SOp emissions are due to
processes other than stationary fuel combustion sources.
2.3 BACKGROUND OF THE DEVELOPMENT OF THE CURRENT STATE IMPLEMENTATION PLAN.
From even before 1965, agencies within Texas had responsibilities for
investigating and controlling atmospheric pollution. Additional authority for
air pollution control activities were obtained via the Clean Air Act of Texas
was first passed in 1965. In 1967, this legislation was strengthened, and
renamed as the Texas Clean Air Act. It was again strengthened in 1969. The
responsibility for the control and abatement of air pollution in Texas lies
with the Texas Air Control Board. The Board fulfills this responsibility by
adopting the rules and regulations which are considered necessary. The
purpose of the State's SIP is to fulfill the minimum requirements specified in
the Federal Register 158, and to show that NAAQS can be attained in the
prescribed time limit.
Using 1969 air quality and emissions data, the SIP summarizes the develop-
ment of control strategies for particulates and S02, as well as for other
pollutants. As mentioned earlier, the Metropolitan Houston-Galveston AQCR (216)
15
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was used as the Example Region for this process. But because the sulfur
oxide emissions from the El Paso-Las Cruces-Alamogordo AQCR (153) were
sufficiently different from those in the Example Region, a separate control
strategy demonstration was also presented for this region.
Table A-8 provides a summarization of the particulate and S02 emission
limiting regulations that would apply to the State's stationary fuel
combustion equipment. For particulates there are essentially two sets of
regulations; one which applies generally to visible emissions, and a second
regulation that is directed specifically at particulate matter. The
regulation for visible emissions corresponds to Rule 103 and is expressed in
terms of the percent opacity of the emission under varying conditions. The
other regulation for particulates corresponds to Rule 105, and it has three
sections. The first section states the allowable emission limit in terms of
effluent flow rates. That is, the allowable limit of particulates is
determined by a mathematical relationship with the volume rate (acfm = actual
cubic feet per minute) of gases going up the stack. It also appears that
this regulation requires an across the board reduction in emissions
depending on the relationship between two parameters associated with the
stack height. The second section of this regulation states the limit in
terms of ambient air concentration maximums observable beyond the premises
where the source is located. Limits stated in this manner are sometimes
referred to as "property line regulations", and they are often considered
to have inherent enforcement problems.
The third section excludes solid fossil fuel fired steam generators
from the limitations of the other two sections, and sets another control value
for this type of equipment. This control value is stated in the format
normally used for fuel burning equipment, (that is, by prescribing the number
of pounds of pollutant than can be emitted for every 106 Btu of energy produced),
Based on the way the regulation is written, it seems that any installation
that is subject to the stipulations of the first section would also be subject
to the second section and visa versa. Thus for full compliance, the applicable
limits for neither of these two sections should be exceeded.
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The regulation for the control of S02 is Rule 201, and it has a number
of sections. Some of these sections state limits for specific sources such
as sulfuric acid plants, sulfur recovery plants and non-ferrous smelters.
Those sections of this regulation which are applicable to stationary fuel
burning equipment are shown in Table 8. The first of these sections apply
to solid fossil fuel fired steam generators. Its limit is stated using
the convenient pounds/million Btu format. The second section applies
specifically to liquid fuel fired generators, furnaces or heaters, and it
places a concentration limit presumably on the stack emissions. This section
also mandates emission reductions depending on various stack height parameters,
The remaining three sections give limits for non-specific S02 sources in
terms of ambient air SCL concentrations. Two sections stipulate differing
limits for different counties, while the third section apparently applies to
the non-specific sources in the rest of the State.
The SIP demonstrated the attainment and maintenance of national
particulate standards via the application of the State's emission limiting
regulations to major point (and where applicable area) sources in the
Example Region, and then using AQDM to provide predictions of the resulting
air quality. The regulations used in this demonstration were those covering
outdoor burning (Rule 101), incineration (Rule 102), visible emissions
(Rule 103), particulate matter from material handling, construction and
roads (Rule 104), general particulate matter (Rule 105), transient operations
(Rule 106), and agricultural processes (Rule 107).
Before application of the limits of these regulations, an ambient
3
particulate level of 92 ug/m annual geometric mean (AGM) was estimated.
o
The level predicted after application of emission controls was 55 ug/m
(AGM). Since this prediction was based on 1969 data, it did not take into
account the growth that would take place between then and the prescribed
attainment date in 1975. Therefore, this growth effect was factored in,
o
and the resulting air quality was predicted to be 56 ug/m (AGM) which is
below the Federal secondary standard for this pollutant.
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In preparing the AQDM predictions, a value of 25 ug/nr* was utilized as
the background particulate concentration. This value was based on the air
quality in Matagorda County (located in the Example Region) which contains
only minor sources of man-produced particulates.
For S09 the Miller-Holzworth model was applied to the major sources in
3
the Example Region, and this produced an air quality estimate of 70 ug/m
annual arithmetic mean (AAM). Using this value in a proportional rollback
model, it was shown that a 14.3% reduction in SCL emissions would be requi-
red to attain and maintain secondary standards. (Note: This percentage
reduction is based on 60 ug/m as the secondary annual standatd for S0?.
This value has since been rescinded. The current annual standard for S00
3
is 80 ug/m .) To evaluate the control strategy for S02, the State's SOp
emission limitations were applied to 62 of the major sources in the Metro-
politan Houston-Galveston AQCR. The twenty largest of these facilities
were responsible for 99% of the Region's total SOp emissions. These regu-
lations resulted in a 31.5% reduction in emissions (a total of 55,700 tons
o
per year). An ambient level of 48 ug/m (AAM) was predicted as the corre-
sponding resulting air quality. Five years of growth would produce an in-
o
crease in this level to 49 ug/m (AAM).
The demonstration of the S02 control strategy for the El Paso-Las Cruces-
Alamogordo AQCR involved use of the 1300 ug/tn^ secondary 3-hour standard
o
instead of the annual standard. A value of 1900 ug/rrr was the highest 3-hour
value representing the then current emission levels. A proportional rollback
calculation shows a 31.6% emission reduction would be required to meet the
3-hour standard. The SIP indicates that the State's controls on the major
sources in this AQCR will result in an overall emission reduction of 43%.
Thus NAAQS would be achieved.
While it is stated in the SIP that the effective date for these
regulations covering particulate and S0£ emissions is March 6, 1972, it is
also mentioned that the State's sources are programmed to be in compliance
with these regulations by December 1973. Thus the State will have
approximately 1 1/2 years of the regulation - based emission limitations
before the prescribed July 1975 attainment date is reached.
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2.4 SPECIAL CONSIDERATIONS
Due to the combined effect of two major factors, it is impossible,
within the context of this review, to accurately determine the extent to
which most of the State's individual stationary sources are in compliance
with the applicable regulations. Consequently, it is also impossible to
definitively evaluate the restrictiveness of these regulations in these
cases. The two major factors involved are (1) the general formats of
Texas' regulations, and (2) the types of data on individual sources made
available for this review. Because of this situation, the only regula-
tions that can be evaluated are those which express the emission limit
in terms of pounds of pollutant per million Btu of heat input. For Texas
this consists of the particulate and SOp regulations for solid fossil fuel
fired steam generators. Based on available information, Texas has only
one stationary facility which used a solid fossil fuel during 1972 and 1973.
Two additional facilities presently burn solid fossil fuel. However, even
though the evaluation of the restrictiveness of the Station's emission
regulations is effectively precluded by the above described situation, it
should be noted that it is possible to use air quality data to help identify
areas which may be candidates for increased emission, and in thereby effect
clean fuel savings.
Texas is currently in the process of revising the emission regula-
tions for the smelter in El Paso. Though this would not have a direct
bearing on fuel burning equipment, it does represent an SIP change which
may have some effect on air quality.
At the time the plan was approved, El Paso County in the El Paso-
Las Cruces-Alamogordo AQCR was listed as a proposed AQMA for SOp. But
based on recent thinking of EPA Region VI, it appears unlikely that this
region will be promulgated. However, it is expected that Galveston County
(in the Houston-Galveston AQCR (216)), will be promulgated as a S02 AQMA.
The attainment dates shown in Table A-2 were based on information
published in the Federal Register. However, after a recent analysis of
air quality data, EPA and the State of Texas are currently evaluating
the prospect of revising these dates.
19
-------
3.0 AQCR ASSESSMENT
3.1 REGIONAL AIR QUALITY
Factors relating to the format of Texas' emission regulations have
precluded evaluation of their restrictiveness within the context of this
review. Neither the visible emissions regulation, nor the "property
line" format of portions of Texas' particulate and SO^ regulations is
amenable to the SIP review.
Tables A-4 and A-5 present the air quality status for TSP and S02 in
Texas. Tables A-9 and A-10 show estimates of emission tolerance based on
a proportional model of emissions to 1973 air quality data. This display
should be viewed in light of the limitations mentioned in Section 1.0 The
portion of these tables that apply to SIP information was included as a
means of summarizing the emission control goals of the State. However,
the detailed information necessary for this type of anlysis was not made
available for this review.
Tables B-l and B-2 are summaries of a number of the indicators which
should be considered when estimating the potential for fuel switching to
achieve clean fuel savings.
Based on the information presented in Tables A-9 and B-l, increases
in particul ate emissions would tend to aggravate an air quality situation
which is typified by TSP violations in each of the State's AQCRs.
With the exception of Galveston County, where recent air quality indi-
cates a need for air quality maintenance, and the Brownsville-Laredo AQCR,
which had no 1973 air quality data for S02, each of Texas' AQCRs have a
tolerance for increased SOp emissions without violating NAAQS (see Tables
A-10 and B-2). To determine an allowable level of increased emissions
would require an analysis involving diffusion modeling. However, it should
be noted that most of the fuel switches that would increase S02 emissions
(i.e., use of higher sulfur oil or coal instead of gas) would also
produce corresponding increases in particul ate emissions, and thus further
aggravate the State's TSP situation.
20
-------
3.2 STATEWIDE FUEL USE FOR POINT SOURCES
Table B-3 shows that the major fuels in the state can be categorized
as natural gas, oil and wood. The figures involving the wood category uti-
lize an average heat content of 5000 Btu/lb. The heat values of materials
in this category vary widely depending on their composition and moisture
content. However, since the heat contents for relatively dry wood typi-
cally range between 6000 and 8000 Btu/lb, the 5000 Btu/lb figure appears
to be a relatively conservative estimate. Due to the variability of heat
values, moisture content, and resultant emissions of the individual fuels
in this category, the 5000 Btu/lb estimate has been used solely in those
calculations aimed at providing a first approximation of the relative
importance of these materials as fuels within Texas.
3.3 POWER PLANT ASSESSMENT
The tables that comprise Appendix C provide a listing of the power
plants in the State along with a general description of each plant's emis-
sion characteristics. This listing and information was obtained from the
NEDS data on individual sources.
As shown in Table C-1, Texas has a total of 73 power plants. Infor-
mation from the Steam-Electric Plant Factors publication show that their
installed generating capacity varies from 25 megawatts electric (Mwe) to
1550 Mwe. The State's total capacity is 32,274 Mwe.
The State's largest generating capacity power plant (1550 Mwe) is
located in the Metropolitan Houston-Galveston AQCR and it has a total
hourly heat input of 10,351 x 106 Btu. The Steam-Electric Plant Factors
publication indicates that 65 of Texas' 73 power plants were designed to
utilize natural gas and/or oil as a fuel, while of the remaining eight
plants, seven were designed for natural gas only. One plant was designed
to use solid fuel and/or gas. The 1973 fuel schedule of this plant con-
sisted entirely of lignite. More recent information shows that there are
currently (1975) a total of three power plants in Texas which burn lignite.
Natural gas provides overwhelmingly the major segment of heat input
to the power plants identified in Appendix C. Of the total 152,092 x 10
Btu/hr heat input supplied to these facilities, 138,161 x 106 Btu/hr (or
90.8%) is produced by natural gas. The State's lignite burning facility
21
-------
accounts for 5% of the total heat input to power plants. The remaining
4.2% is spread among the 63 power plants which use oil as a fuel. Of
these 63 plants, only one uses oil exclusively; the rest combine their oil
use with natural gas.
The Metropolitan Dallas-Fort Worth AQCR (215) contains the largest
number of power plants (15), while the Example Region (Metropolitan
Houston-Galveston) has 11. However, the heat input to this smaller number
of plants is 35% greater than the heat input to the 15 power plants in the
Metropolitan Dallas-Fort Worth AQCR.
For most of the power plants in Table C-l an "allowable" level of parti-
culate emissions is noted. This value was obtained directly from Table A-8a
which shows the allowable particulate emissions rates that correspond to
various stack effluent flow rates. These allowable values would apply only
if the source has an effective stack height which is greater than (or equal
to) the standard effective stack height. (See the particulate matter regu-
lation in Table A-8 for definition of these terms.) However, if this is
not the case, then the allowable emission levels shown in Table A-8a, (and
therefore, in Table C-l) would have to be reduced by a factor obtained with
the equation shown in Table A-8. Data was not available to allow for com-
putation of the effective stack height, so any reductions that may be requi-
red could not be calculated. Therefore, the "allowable" values shown in
Table C-l represent the applicalbe limit only in the certain special cases
mentioned above.
The portions of Texas' particulate and S02 emission control regulations
for steam generators using solid fossil fuel lends itself to the type of
analysis being used in this review. Available information indicates the
only major source in the State that would be subject to these limits (a
lignite burning power plant in the Austin-Waco AQCR (212), is exceeding
the established limits for particulates.
The fact that the majority of Texas' power plants use both oil and
natural gas increases the potential for fuel switches aimed at clean fuel
savings. However, air quality data shows that increasing particulate
emissions should be avoided. Increasing the particulate emission level
would tend to aggravate the State's problem of NAAQS TSP violations.
22
-------
3.4 INDUSTRIAL/COMMERCIAL/INSTITUTIONAL SOURCE ASSESSMENT
Table D-l presents the pertinent fuel combustion data for point
sources in the industrial/commercial/institutional sector (commonly
referred to as the industrial sector in this review). This information
was obtained from NEDS emission data for the individual sources.
Appendix D shows a total of eight specific industrial fuel burning
sources within the State of Texas. Considering the physical expanse of
the State, its industrial activity, and the large number of power plants
as listed in Appendix C, it is likely that the data listing for industrial
sources made available for this study was incomplete.
3.5 AREA SOURCE ASSESSMENTS
For the State of Texas, area sources offer little, if any, potential
for achieving clean fuel savings within the context of this review.
23
-------
APPENDIX A
e State implementation plan information
e Current air quality information
e Current emissions information
Tables in this appendix summarize original and modified state imple-
mentation plan information, including original priority classifications,
attainment dates, ambient air quality standards, and fuel combustion emis-
sion regulations. SAROAD data for SC^ and TSP monitoring stations are shown
for AQCRs in the State. NEDS emissions data by AQCR1 are tabulated and
broken down into fuel burning categories.
Tables A-9 and A-10 show a comparison of emission inventories in the
original SIP and those from the NEDS. An emission tolerance, or emission
tonnage which might be allowed in the AQCR and still not violate national
secondary ambient air quality standards, is shown for S(L and particulates.
The intent of this calculation is to indicate possible candidate regions
for fuel switching. Tolerance was based on either the degree of control
expected by the SIP or upon air quality/emission relationships which are
calculated from more recent data. The value of the emission tolerance
provides an indication of the degree of potential an AQCR possesses for
fuel revisions and regulation relaxation.
Methodology for Increased Emissions Tolerance
A tolerance for increased emissions was determined as follows:
The "allowable emissions" were calculated for each AQCR based on 1972 NEDS
data and the percent reduction (or increase) required to meet the national
secondary ambient air quality standards in that AQCR (worst case from
Tables A-4 and A-5).
The percentages used in this calculation were obtained via the use of
current 1973 air quality data and the proportional rollback model. The
values for background TSP concentrations were the same as those used in the
SIP. This background value was used in all calculations involving the
annual standard, but a zero TSP background was assumed for the calculation
of reductions based on the 24-hour standard. (This was done because back-
ground levels are, in effect, an annual average, and therefore, should be
1"1972 National Emissions Report," EPA - 450/2-74-012, June 1974.
A-l
-------
compared with only annual data. It is reasonable to expect that the
"real background" for any particular 24-hour period to be different for
other 24-hour periods.)
The NEDS emissions are subtracted from the "allowables" to determine
the tolerance for emissions increase. A positive value for this result
indicates a potential for increasing emissions.
When the current air quality levels were less than one-half of the
level represented by an ambient air quality standard, no "rollup" emissions
tolerance was calculated in Tables A-9 and A-10. This arbitrary cutoff
point was chosen so as not to distort the emissions tolerance for an area.
At low levels of a pollutant, the relationship between emissions and air
quality is probably not linear. Although this cutoff may leave some AQCRs
with jio quantifiable emissions tolerance, it was felt that no number at all
would be preferable to a bad or misleading number.
It is emphasized that emissions tolerance is a region-wide calculation.
This tolerance obviously makes more sense in, say, an urban AQCR with many
closely spaced emissions sources than in a largely rural AQCR with
geographically dispursed emissions.
A word of caution regarding particulates needs mentioning. Emission
source estimates in the NEDS data bank and most state SIP's are for total
particulates. Generally, the control strategies for particulates are
aimed at total particulates, while the high-volume particulate sampling
(SAROAD data) measures only the finer, suspended fraction. A given level
of total particulate emissions control will therefore not translate into
the same level of measured ambient air quality. Some of the larger
particulates being controlled will not remain suspended, and therefore would
not be measured by the High-volume technique. Hence, particulate control
plans may have underestimated the amount of control necessary to achieve
ambient air quality standards.
A-2
-------
AMARILLO-
LUBBOCK
INTRASTATE
(211)
MIDLAND-
ODESSA-
SAN ANGELO
INTRASTATE
(218)
ABILENE-
WICHITA FALLS
INTRASTATE
METROp0LITAN
DALLAS-
FORT WORTH
INTRASTATE
SHREVEPORT-
TEXARKANA-
TYLER
INTERSTATE
(ARKANSAS-
LOUISIANA-
OKLAHOMA-
TEXAS)
(022)
EL PASO-
LAS CRUCES-
ALAMOGORDO
INTERSTATE
(TEXAS-
NEW MEXICO)
(153)
SOUTHERN
LOUISIANA-
SOUTHEAST
TEXAS
INTERSTATE
(106)
METROPOLITAN
SAN ANTONIO
INTRASTATE
(217)
AUSTIN-
WACO
INTRASTATE
(212)
METROPOLITAN
HOUSTON
GALVESTON
INTRASTATE
(216)
BROWNSVILLE-
LAREDO
INTRASTATE
(213)
CORPUS CHRISTI-
VICTORIA
INTRASTATE
(214)
Figure A-l. Air Quality Control Regions in Texas
A-3
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APPENDIX B
Tables B-l and B-2 are the assessment of AQCRs which should be
examined for the fuel switching impact on particulate and S02 emissions.
They also provide an identification of those AQCRs which show little
potential for fuel revision or regulation relaxation if ambient air standards
are to be attained.
The general criteria for candidacy is covered by the list of questions
found at the beginning of Section 2.0. Some of the more important criteria
is reflected by the tables in this appendix. These criteria include (1)
the breadth of air quality violations, (2) the fraction of total emissions
resulting from fuel combustion, (3) proposed AQMA designations, (4)
expected attainment dates, (5) total regional emissions, and (6) regional
tolerances for emissions increase.
It should be noted that an AQCR may not necessarily need relaxation
of regulations in order to accomplish fuel switching. Further, a good
candidate in Tables B-l and B-2 may later show little potential for fuel
switching after individual sources are examined. Finally, it is possible
that an AQCR may have air quality levels below standard at present and may
require more strict regulations than currently exist if all fuel burning
sources were converted to dirtier fuels, i.e., "average" emission rate now
may be below "average" regulations.
B-l
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APPENDIX C
This appendix provides a characterization of individual power plants
by AQCR. Current power plant information used to prepare Table C-l was
obtained from three main sources: (1) Federal Power Commission computerized
listings of power plants and their associated fuel use, (2) the National
Coal Association's Steam-Power Plant Factory, listing of power plants and
fuel use in 1972, and (3) emission data in the NEDS data bank as of
June 29, 1974. Fuel schedules for 1973 were extracted from the FPC data
(1 above), and this was used in conjunction with NF.DS emission data to es-
timate 1973 emissions for each of the sources. When 1973 fuel schedules
were not available, 1972 schedules were used as taken from NEDS. SOp and
particulates emissions are those associated with the fuel shown. When actual
emissions were not listed in flEDS, AP-42 emission factors were used to estimate
S02 and particulate emissions, based on fuel schedules.
After the name of each plant is a listing of the fuels for which the
plant was designed (from source 1). For the purposes here, it is assumed
that when a plant is shown to have dual fuel capability, it is able to use
entirely one fuel or the other.
The "allowable" emission levels shown in this Appendix apply only in
those cases where the effective stack height is greater than, (or equal to)
the standard effective stack height. To determine which of the individual
sources meet this criteria requires data which was not available for this
review.
It might be cautioned that AQCR total emissions calculated in the
tables of Appendix C (and also Appendix D) may not agree exactly with
total emissions represented in Appendix A (Tables A-6, A-7). This is a
result of both differing fuel schedules in 1973 compared to previous years
and the relative "completeness" of the NEDS data bank.
The units for the annual amounts of fuel used for individual sources in
this Appendix are 103 gallons for oil, tons for solid fossil fuels, and
10 cubic feet for natural gas.
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APPENDIX D
The Table D-l in this appendix lists individual industrial/commercial/
institutional sources of participates and SO,, emissions which might show
fuel switching potential. The sources are from a NEDS rank order emissions
listing.
It should be cautioned that the percent emissions accounted for is
different than the "% of fuel use accounted for," It is possible that
several potential fuel switch sources could be overlooked by the cutoff point
on the emissions (i.e., a reasonable sized natural gas used may emit below
our cutoff point in the NEDS rank order list).
No information was available for feasibility of any_ fuel
switching.
The units for the annual amounts of fuel used are as follows:
3
10 gallons for oil
10 cubic feet for natural gas
tons for wood and bagasse.
The "allowable" emission levels shown in this Appendix apply only in
those cases where the effective stack height is greater than, (or equal to)
the standard effective stack height. To determine which of the individual
sources meet this criteria requires data which was not available for this
review.
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BIBLIOGRAPHY
1. "1972 National Emissions Report," U. S. Environmental Protection Agency,
EPA-450/2-74-012.
2. "Projections of Economic Activity for Air Quality Control Regions,"
U.S. Department of Commerce, Bureau of Economic Analysis, prepared
for U.S. EPA, August 1973.
3. "Monitoring and Air Quality Trends Report, 1972," U.S. EPA-450/1-73-
004.
4. "Steam-Electric Plant Factors/1072," 22nd Edition National Coal
Association.
5. "Federal Air Quality Control Regions," U.S. EPA, Pub. No. AP-102.
6. "Assessment of the Impact of Air Quality Requirements on Coal in
1975, 1977 and 1980," U.S. Department of the Interior, Bureau of
Mines, January 1974.
7. "Fuel and Energy Data," U.S. Department of Interior, Bureau of Mines,
Government Printing Office, 1973, 0-550-211.
8. "Compilation of Air Pollutant Emission Factors, 2nd Edition," U.S.
EPA, Air Pollution Tech., Pub. AP-42, April 1973.
9. SAROAD Data Bank, 1973 Information, U.S. EPA.
10. Federal Power Commission, U.S. Power Plant Statistics Stored in EPA
Data Bank, September 1974.
11. "Energy Potential from Organic Wastes: A Review of the Quantities
and Sour-res," Bureau of Mines Information Circular 8549, Department
of Interior, 1972, written by L. L. Anderson.
12. "Implementation Plan Evaluation Report for the State of Texas."
13. "Texas Air Pollution Control Implementation Plan," submitted
January 28, 1972 by Governor Preston Smith.
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TECHNICAL REPORT DATA
(Please read lustnictunis on the reverse before coin^k linj:/
1. REPORT NO.
EPA-450/3-75-025
3 RECIPIENT'S ACCESSIOW-NO.
4. TITLE AND SUBTITLE
IMPLEMENTATION PLAN REVIEW FOR TEXAS AS
REQUIRED BY THE ENERGY SUPPLY AND ENVIRONMENTAL
COORDINATION ACT
7 AUTHOR(S)
9. PERFORMING ORGANIZATION NAME AND ADDRESS
U. S. Environmental Protection Agency, Office of Air
Quality Planning and Standards, Research Triangle
Park, N. C. Regional Office VI, Dallas, Texas, and
TRW, Inc. Redondo Beach, California 90278
5. REPORT DATE
13. PERFORMING ORGANISATION CODE
8. PERFORMING ORGANIZATION REPORT NO
10. PROGRAM ELEMENT NO.
11 CONTRACT/GRANT NO.
I
12. SPONSORING AGENCY NAME AND ADDRESS
13. TYPE OF REPORT AND PERIOD COVERED
U. S. Environmental Protection Agency
Office of Air and Waste Management
Office of Air Quality Planning and Standards
Research triangle Park, North Carolina 27711
14. SPONSORING AGENCY CODE
15. SUPPLEMENTARY NOTES
16. ABSTRACT
Section IV of the Energy Supply and Environmental Coordination Act of 1974,
(ESECA) requires EPA to review each State Implementation Plan (SIP) to determine
if revisions can be made to control regulations for stationary fuel combustion
sources without interfering with the attainment and maintenance of the national
ambient air quality standards. This document, which is also required by Section
IV of ESECA, is EPA's report to the State indicating where regulations might be
revised.
KEY WORDS AND DOCUMENT ANALYSIS
DESCRIPTORS
Air Pollution
State Implementation Plans
b.lDENTIFIERS/OPEN ENDED TERMS
c. COSATI Held/Group
18. DISTRIBUTION STATEMENT
Release unlimited
19 SECURITY CLAbS (This Report)
Unclassified
21 NO. OF PAGES
82
20. SECURITY CLASS (Tlns
Unclassified
22. PRICE
EPA Form 22ZO-1 (9-73)
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