REPORT FOR CONSULTATION ON THE

               PORTLAND INTERSTATE

            AIR QUALITY CONTROL REGION

               (OREGON-WASHINGTON)
U.  S.  DEPARTMENT OF HEALTH,  EDUCATION, AND WELFARE
              Public Health  Service
           Environmental Health Service

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                                      95OR7OOO2
         REPORT FOR CONSULTATION ON THE

              PORTLAND INTERSTATE

           AIR QUALITY CONTROL REGION

               ( OREGON-WASHINGTON)
u. S.  DEPARTMENT OF HEALTH, EDUCATION, AND WELFARE
             Public Health Service
Consumer  Protection and  Environmental Health Service
    National Air Pollution Control Administration
                March,  1970

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                     CONTENTS









PREFACE	i




INTRODUCTION	1




EVALUATION OF URBAN FACTORS	11




EVALUATION OF ENGINEERING FACTORS	30




THE PROPOSED REGION	56




   DISCUSSION OF PROPOSAL	56




REFERENCES	62

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                          PREFACE


     The Air Quality Act of 1967 directs the Secretary of Health,

Education, and Welfare to designate "air quality control regions"

to provide a basis for the adoption of regional air quality

standards and the implementation of those standards.

     The Act stipulates that the designation of a region shall

be preceded by consultation with appropriate State and local

authorities.  This report is intended to serve as background

material for the consultation.  It proposes boundaries for the

Portland Interstate Air Quality Control Region and discusses

the factors which are the basis of the boundary proposal.

     The Region* boundaries proposed in this report reflect

consideration of available and pertinent information.  However,

the proposed boundaries remain subject to revisions suggested

during consultation with State and local authorities.  Formal

designation of a Region will be made only after a careful review

of all opinions and suggestions submitted during the consultation

process.

     The National Air Pollution Control Administration (NAPCA)

appreciates assistance received from the State and regional

air pollution control programs of Oregon and Washington, and the

county and regional planning agencies in the Study Area.
*For the purpose of this report, the word "region" when capitaliced,
will refer to the Portland Interstate Air Quality Control Region.

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                           INTRODUCTION






THE REGIONAL APPROACH



     Air pollution in the urban areas of the United States is



a regional problem which frequently extends across State and



local governmental boundaries.  Since air pollution problems



are rarely confined to any single municipality or county, successful



control requires coordinated planning, standard setting, and



enforcement by the several political jurisdictions which share



a common problem.  At the present, State and local governments



across the Nation have only begun to develop a regional approach



to air pollution control.



     The Clean Air Act as amended provides a regional approach



which depends upon coordination and cooperation between all



levels of government:  municipal, county, State and Federal.



To set in motion the machinery for regional air pollution control,



the Department of Health, Education, and Welfare first designates



air quality control regions, issues air quality criteria, and



publishes reports on control techniques.  The region designation



Indicates which State and local jurisdictions will be involved




in a regional air pollution control effort.  The air quality




criteria indicate the extent to which various concentrations of



an air pollutant are harmful to health and damaging to property.



The reports on control techniques provide information on the




costs and effectiveness of various techniques for controlling air



pollutant emissions.

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     After the Department  of Health,  Education, and Welfare



completes these  initial  steps, State  governments develop air



quality  standards  and plans for  implementation of those



standards for portions of  air quality control regions within



their boundaries.  An air  quality standard defines the desired



limit on the concentration of a  pollutant in the ambient air



of the region.   It constitutes the degree of air quality which



the  regional control program will attempt to achieve.  An



implementation plan is a blueprint of the steps which will be



taken to insure  achievement of the air quality standards



within a reasonable time.  The Governors have 90 days to



submit letters indicating  that they intend to set standards,



180  days in addition to  set the  standards, and 180 days further



to develop plans for implementing them.  The procedure for



setting  standards  Includes a public hearing which allows



residents of a region to express their views concerning desired



standards.



     The Department of Health, Education, and Welfare reviews



air  quality standards and  implementation plans in order to



ascertain their  consistency with the  provisions of the Clean



Air Act  as amended.



     When air quality standards  and implementation plans are



approved, States proceed to prevent and control air pollution



in accordance with those standards and plans.  This system for



establishing a regional  approach to air pollution control is



depicted in the  flow diagram in  Figure 1.

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  HEW DESIGNATES
   AIR QUALITY
 CONTROL REGIONS.
 HEW DEVELOPS AND
   PUBLISHES AIR
 QUALITY CRITERIA
ฃASED ON'SCIENTIFIC
  EVIDENCE OF AIR
 POLLUTION EFFECTS.
  HEW PREPARES
  AND PUBLISHES
   REPORTS ON
AVAILABLE CONTROL
   TECHNIQUES
                                  STATES INDICATE
                                  THEIR INTENT
                                  TO SET STANDARDS.
(PUBLIC
HEARINGS)
STATES SET
AIR QUALITY
STANDARDS
FOR THE AIR
QUALITY CONTROL
REGIONS.
                                                                     I
             STATES SUBMIT
             STANDARDS FOR
             HEW REVIEW.
                                      STATES ESTABLISH
                                      COMPREHENSIVE PLANS
FOR IMPLEMENTING
AIR QUALITY
STANDARDS.
                         STATES SUBMIT
                         IMPLEMENTATION PLANS
                         FOR HEW REVIEW.
                                                                       STATES ACT TO CONTROL
                                                                       AIR POLLUTION IN ACCORDANCE
                                                                       WITH AIR QUALITY STANDARDS
                                                                       AND PLANS FOR IMPLEMENTATION.
                                                                                                              uป
              Figure 1 FLOW DIAGRAM FOR ACTION TO CONTROL AIR POLLUTION ON A REGIONAL
                     BASIS, UNDER THE AIR QUALITY ACT.

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DESIGNATION OF AIR QUALITY  CONTROL REGIONS

     Designation of  an air  quality control region is one of the

first  steps in the regional approach to  air pollution control.

Section 107(a)(2)  of the Clean Air Act as amended directs the

Secretary,  Department of Health,  Education, and Welfare to make

such designations.   The portions  of the  section relevant to

this discussion  state:
           ''...The Secretary,  after consultation with
      appropriate  State  and  local  authorities  shall...
      designate  air quality  control regions based on
      jurisdictional boundaries, urban-industrial con-
      centrations,  and other factors  including atomspheric
      areas necessary to provide adequate  implementation
      of  air  quality standards.  The  Secretary may...
      revise  the designation of such  regions... The Secretary
      shall immediately  notify the Governors of the affected
      State or States of such  designation."
The Size of a Region

     As stipulated  in Section 107(a)(2), the designation of

air quality control regions should be based on "jurisdictional

boundaries, urban-industrial concentrations, and other factors

including atmospheric areas necessary to provide adequate

Implementation of air quality standards."  This language suggests

a number of objectives which are important in determining how

large an air quality control region  should be.  Basically, these

objectives can be divided into three separate categories.

     First, a region should be self-contained with respect to

air pollution sources and receptors.  In other words, a region

should include most of the important sources in the area as

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well as most of the people and property affected by those sources.



Unfortunately, since air pollutants can travel long distances,



it is impractical if not impossible to delineate regions which



are completely self-contained.  The air over a region will usually



have at least trace amounts of pollutants from external sources.



During episodic conditions, such contributions from external



sources may even reach significant levels.  Conversely, air



pollution generated within a region and transported out of it



can affect external receptors to some degree.  It would be



impractical and inefficient to make all air quality control



regions large enough to encompass these low-level trace effects.



The geographic extent of trace effects overestimates the true



problem area which should be the focus of air pollution control



efforts.  Thus, the first objective, that a region be self-




contained, becomes a question of relative magnitude and frequency.



The dividing line between "important influence" and "trace



effect" will be a matter of judgment.  The judgment should be



based on estimates of the impact a source has upon a region



and the level of pollution to which receptors are subjected.



In this respect, annual and seasonal data on pollutant emissions



and ambient air concentrations are a better measure of relative




influence than short term data on episodic conditions.  The




second general objective requires that region boundaries be



designed to meet not only present conditions but also  future




conditions.  In other words, the region should include areas

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where Industrial  and residential  expansion are  likely to create



air pollution problems  in the foreseeable  future.  This objective



requires careful  consideration of existing metropolitan development



plans,  expected population growth,  and  projected industrial




expansion.   Such  considerations should  result in the designation



of regions which  will contain the sources  and receptors of



regional air pollution  for a number of  years to come.  Of course,




region boundaries need  not be permanently  fixed, once designated.



Boundaries should be reviewed periodically and  altered when



changing conditions warrant readjustment.



      The third objective is that  region boundaries should be



compatible with and even foster unified and cooperative governmental



administration of the air resource throughout the region.  Air



pollution is a regional problem which often extends across



several  municipal,  county,  and even State  boundaries.  Clearly,



the collaboration of several governmental  jurisdictions is



prerequisite to the solution of the problem.  Therefore, the



region  should be  delineated in a  way which encourages regional



cooperation  among the various governmental bodies involved in




air pollution control.   In this regard,  the existing pattern



of  governmental cooperation on the whole range  of urban problems




may become an important consideration.   Certainly the pattern



of  cooperation among existing air pollution control programs




is  a relevant  factor.   In general,  administrative considerations




dictate that  governmental  Jurisdictions  should  not be divided.

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Although it would be impractical to preserve State jurisdictions




undivided, usually it is possible to preserve the unity of county



governments by including or excluding them in their entirety.



Occasionally, even this would be impractical due to a county's




large size, wide variation in level of development, or striking



topographical features.



     To the extent that any two of the above three objectives



lead to incompatible conclusions concerning region boundaries,



the region must represent a reasonable compromise.   A region



should represent the best way of satisfying the three objectives



simultaneously.








Procedure for Designation of Regions



     Figure 2 illustrates the procedures used by the National




Air Pollution Control Administration for designating air quality



control regions.




     After evaluating relevant engineering factors and urban



factors, the National Air Pollution Control Administration



publishes a proposed delineation of the region boundaries.  At



the same time NAPCA sets a time and place for a consultation




meeting and distributes to State and local authorities a report




of the evaluation study which includes the boundary proposal.




At the consultation meeting State and local authorities are



encouraged to present fully their views and suggestions concerning




the proposed boundaries of the region.  Interested parties who

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    ENGINEERING EVALUATION

• EMISSIONS INVENTORY

• TOPOGRAPHY

• METEOROLOGY

• AIR QUALITY ANALYSIS
    EXISTING AIR QUALITY DATA
    DIFFUSION MODEL OUTPUT
   URBAN FACTORS EVALUATION

• JURISDICTIONAL BOUNDARIES

• URBAN-INDUSTRIAL CONCENTRATIONS

• COOPERATIVE REGIONAL ARRANGEMENTS

• PATTERNS AND RATES OF GROWTH

• EXISTING STATE AND LOCAL AIR POLLUTION
     CONTROL PROGRAMS & LEGISLATION
                                           PRELIMINARY
                                           DELINEATION
                                           OF REGIONS
 CONSULTATION
WITH STATE AND
LOCAL OFFICIALS
H
   FORMAL
DESIGNATION BY
SECRETARY-HEW
              Figure 2. FLOW DIAGRAM FOR THE DESIGNATION OF AIR QUALITY CONTROL REGIONS.

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do not have official status may submit comments in written form



for the record.  After careful review of all suggestions and




opinions submitted for the record by interested parties, the



Secretary of Health, Education, and Welfare makes a formal



designation of the region boundaries and notifies the Governors




of the designation.



     As noted above, the evaluation of relevant engineering



factors and urban factors forms the basis of the boundary



proposals published by NAPCA.   The evaluation of engineering



factors is designed to indicate the location of pollution sources




and the geographic extent of serious pollutant concentrations



in the ambient air.  Pollution sources are located by taking an



inventory of emissions from automobiles, industrial activities,



space heating, waste disposal, and other pollution generators.



The transport and distribution of pollutants in the ambient air



are analyzed on the basis of measured air quality data, the



location of emissions, meteorological data, and topographic



information.  A mathematical diffusion model which predicts




ambient pollution concentrations from information on emissions



and meteorology can be used in areas where irregular topographical



features would not invalidate the theoretical model.  As a




whole, the engineering study indicates how large the air quality



control region must be in order to encompass most pollution



sources and most people and property affected by those  sources.



     The study of urban factors encompasses non-engineering




considerations.  It reviews existing governmental jurisdictions,

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 10





the location of urban and industrial concentrations, expected




patterns of urban growth, cooperative regional arrangements,



existing State and local air pollution control programs, and



other associated factors.  As a whole, the study of urban factors



is designed to indicate how large a region must be in order to



encompass expected regional growth and to encourage cooperation



among political units in controlling air pollution.



     The body of this report contains a proposal for the boundaries



of the Portland Interstate Air Quality Control Region and outlines



the evaluation of engineering and urban factors which were the



basis of the proposal.  The report is intended to serve as the



background document for the consultation with appropriate State



and local officials.

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                                                                 11
                    EVALUATION OF URBAN FACTORS






INTRODUCTION



     A number of urban factors are relevant to defining air




quality control region boundaries.  Since human activity is the



primary cause of air pollution, and humans are the ultimate



victims, the location of population is an important consideration.



The projected population growth pattern is another important



consideration, since an air quality control region should be designed



not only for the present but also for the future.  Political



and jurisdictional considerations are important since the Clean



Air Act envisions regional air pollution programs based on




cooperative efforts among many political jurisdictions.  The



following discussion of urban factors will present these con-



siderations as they apply to the Portland area.








REGIONAL SETTING



     Portland, Oregon, lies at the confluence of the Columbia




and Willamette Rivers in northwest Oregon.  Other major cities




in the area include Vancouver, Washington, located across the




Columbia River from Portland, Kelso-Longview, Washington, lying



north of Portland on the Columbia, and Salem and Eugene, Oregon,



which lie south of Portland in the Willamette Valley.  For  the



purposes of this study, a fifteen-county "study area" was




chosen.  The Study Area includes the counties of Columbia,  Washington,



Multnomah, Yamhill, Clackamas, Polk, Marion, Benton,

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  12


 Linn,  and Lane,  in Oregon,  and Clark,  Cowl it z, Wahkiakum,

 Skamania, and Lewis Counties in Washington.   These counties

 were chosen on the basis of urbanization, regional planning

 and air pollution control arrangements,  topography, and other

 factors which would indicate a close tie between the  Portland

 metropolitan area and the surrounding  counties.  The  Study Area

 counties lie in northwest Oregon  and southwest Washington, in

 the valleys formed by the Columbia and Willamette Rivers.

      The Portland Standard Metropolitan  Statistical Area  (SMSA)*

 consists of Clackamas, Multnomah,  and  Washington Counties in

 Oregon,  and Clark County, Washington.  Marion and Polk Counties

 comprise the Salem SMSA, and Lane County comprises the Eugene

 SMSA.   Figure 3  outlines the Study Area  and the  Portland, Salem,

 and Eugene SMSA's.   Also shown is part of the Seattle SMSA,

 which  lies outside the Study Area.

     The Puget Sound Air Quality  Control Region, consisting of

 Snohomish,  King,  Pierce,  and Kitsap Counties  in Washington,

 was  officially designated by the  Secretary of Health, Education,

 and Welfare,  In  1969.
*SMSA's are defined by the Bureau of the Census and other Federal
agencies for use in publishing census data and a variety of other
government statistics.  An SMSA is composed of one county or a
group of contiguous counties which contain at least one central
city of 50,000 inhabitants or more or twin-cities with a combined
population of at least 50,000.  In addition, other contiguous counties
are included In an SMSA if, according to certain criteria, they
are essentially metropolitan in character and are socially and
economically integrated with the central city.

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             ••:;.;•'.•-.:•. Sal era SMSA :

             '• •:.'• :•-:':S''•••.'•:• '•:^•''-;•':•:.  •>•.
             •..' -.' pf)L If •'•'•''' '• V • •'• '• •'  fs
•••IIB Boundary of
         Study
                        Figure 3.  Portland Region Study  Area and
                        Standard Metropolitan  Statistical Areas.

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  14


 POPULATION

     Within the fifteen-county Study Area,  six counties have

 populations of over 100,000 residents.   The metropolitan  Portland-

 Vancouver area is centered in four of these counties—Multnomah

 (population, 552,000),  Clackamas (population,  149,000), Washington

 (population, 136,000),  and Clark (population,  114,000).   Marion

 County contains the city of Salem and has a population of 155,000.

 Separated from this core of five counties is Lane County  (population,

 212,000) , which contains the city of Eugene and has  the largest

 land area in the Study  Area.  The 1969 population is shown in

 Figure 4  and in Table I.1

     By population density (1969),  Figure 5, Multnomah County

 is  again  shown to be the center of population  in  the Study Area

 with a density of 1310  residents per square mile.  Washington,

 Clark,  and Marion Counties follow with densities  of  between

 100 and 200 residents per square mile.   The remaining counties

 in  the Study Area have  population densities of less  than  100

 residents per square mile.

     Population projections by county in the Study Area have been

 made by the Oregon State Board of Census and the Washington State

 Census  Board and by several regional planning  agencies.2ป3ป4ป5,6,7

 Table  1 presents population projections for 1980.  Figures 6
*Where more than one projection was available, the projected 1980
population which most nearly conformed to an extrapolation of
the growth from 1960-1969 was chosen.  In the case of three counties
(Benton, Linn, and Yamhill), only one set of projections was
available, and based on the growth from 1960-1969, the projections
were clearly in error.  In these cases, it was assumed that growth
from 1960-1980 would continue at the same rate as from 1960-1969.

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Residents per county
      | > 200,000
        100,000-*-200 ,000
         50,000—100,000
       < 50,000
Figure 4.  Population by County in the
           Portland Area.(1969)

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16
                                                    Table I.  Population Data for the Portland Study Area
County
Bent on
eClackamas
0 Columbia
Lane
•Linn
„ Marion
Multnomah
*• Polk
0 Washington
Yamhill
B Clark
S Cowllta
ฃ Lewis
3 Skamania
5 Wahklakum
Area
mi.2
668
1884
639
4562
2290
1166
422
736
716
711
627
1144
2449
1672
261
Pop. I9601
39,165
113.038
22,379
162,890
58.867
120.888
522.813
26,523
92,237
32,478
93,809
57,801
41,858
5,207
3,426
Pop. Den.
1960
res. /mi.
59
60
35
35
26
104
1235
36
129
46
149
50
17
3
13
Pop. 1969*
48,600
149,000
27,000
212,000
68,700
155,000
552,000
35,000
136,000
41,200
114,000
64,000
43,000
5,900
3,200
Pop. Den.
1969
res. /mi.2
73
79
42
46
30
133
1310
48
190
58
182
56
18
4
12
-!$•
60,000ซ
202,100*
32,200*
274,337"
80, 900?
196,000*
640,400'
49,000*
179,600*
52,000'
166,000"
76,908C
50,669*
7,097f
4,141f
, Projected
Pop. Den.
1980
res. /mi.2
90
107
50
60
35
168
1522
67
251
73
265
67
21
4
16
Projected
Abs. Bop.
Growth
1960-1980
20,835
89,062
9,821
111,447
22,033
75,112
118,587
22,477
87,363
19,522
72,191
19,107
8,811
1,890
715
Projected
Pop. Growth
1960-1980
Add. res. /mi.2
31
47
15
25
9
64
287
31
122
27
116
17
4
1
3
Projected
Pop. Growth
1960-1980
X
53X
78X
43X
71X
35X
62X
23X
86X
95X
59X
78X
34X
24X
36%
23X
               * Metropolitan Planning Coomission
               D Central Lane Planning Council
               c Cowlitx Regional Planning Commission
               d Mid-Willamette Valley Council of Governments
               * Linear Projection Based on 1960 and 1969  Population Data
               ฃ Washington State Census Board

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Resldants per odL.
                                       Figure  5 .   Population Density
                                                by County,  1969.

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 18
 and  7  shew projected population growth,  1960-1980,  by county in



 the  Study Area.   By absolute population  growth,  Figure 6,  it is



 evident that most of the growth will occur in the  Portland-Vancouver



 metropolitan area, especially in Multnomah County,  and around the



 City of Eugene in Lane County.   Washington,  Clark,  Clackamas,



 and  Marion Counties are expected to have grown by  50,000 to  100,000



 residents between 1960 and 1980.



     Figure 7 shows growth from 1960-1980, expressed in additional



 residents per square mile.  Again,  the metropolitan Portland-



 Vancouver area is expected to register the most  growth in  population



 density.   Multnomah County is projected  to add over 200 residents



 per  square mile,  and Washington and Clark Counties, between  100




 and  200.   Marion  County is projected to  register a growth  of 64



 additional residents per square mile,  between 1960 and 1980.



     In summary,  there are three distinct centers  of present



 population in the Study Area,  and these  same areas are projected



 to show the major growth in the next decade.   The  counties



 involved in this  growth are Multnomah, Clark,  Washington,  Clackamas,




 Marion,  and Lane.   These six counties  contain over 1,300,000



 people  and comprise over 80% of the population in  the fifteen-county



 Study Area.








AIR  POLLUTION CONTROL PROGRAMS



     The  Oregon Revised Statutes, Chapter 449, provides the




 legal authority for air pollution control in the State of  Oregon.

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Additional Residents
per County, 1960-1980

    |Xoo,ooo

       30,000--100,000

       10,000—50,000
Figure 6.  Projected Population Growth, 1960-1980,
           of the Study Areq Count-<ซ.ซ  (See
           References 1 through 7)

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A^ditloraL'i Residents
   |>aoo
     lOOw-fcfX*
      50—100
      as
Projected Population Density  Growth
of the Study Area Gai|#^Bg^. li^wso

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                                                                  21
Under the Statutes, authority is vested with the five-member



Environmental Quality Commission within the Department of



Environmental Quality, and the Regional Air Quality Control



Authorities.  Among the duties of the Commission are the following:



developing a comprehensive plan for the control of air pollution



in the State, determining the degree of air pollution in various



areas of the State, conducting research, developing demonstration



programs with local communities, providing technical services



to local communities, and enforcing the Statutes relating to



air pollution.  The Environmental Quality Commission also has



the power to set air purity standards for different areas of the



State, to set air quality standards for the entire State or areas



thereof, to adopt rules and regulations for the prevention of



air pollution, to adopt emission standards, and to grant variances.



     There are several contaminant sources which are exempted



from control under the Statutes, including agricultural operations,



residential barbecue equipment and agricultural land-cleaning



operations, certain residential heating equipment, and fires set



by public officers in connection with weed-burning, civil defense



or fire-fighting instruction, or prevention of a fire hazard.



     The Regional Air Quality Control Act of 1967 provided for



the establishment of regional air quality control authorities.



After the authority is established, it assumes the responsibilities



of the Sanitary Authority functions relating to powers and duties,



rules and regulations, and enforcement.  The regional authority

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  22






has exclusive  control within  its  jurisdiction except for the



sources whose  control is retained by the State.  These include



chemical pulp  and paper industry, nuclear power generation,



motor vehicles, aluminum reduction and agricultural field-burning.



No regional  authority may  adopt a rule or standard which is



less stringent than a rule or standard of the Environmental Quality



Commission.



     Three such regional authorities have been established under



the Act.  The  Columbia-Willamette Air Pollution Authority,



established  in January*1968,  covers the counties of Clackamas,



Columbia, Washington, and  Multnomah Counties.  The Mid-Willamette



Valley Air Pollution Control  Authority was  formed in October,



1967, by joint agreement of the governing bodies of Marion, Polk,



Yamhill, Linn, and  Benton  Counties.  The Lane Regional Air Pollution



Authority has  control authority throughout  Lane County.  Figure



8 shows the  boundaries of  the regional jurisdictions, including



the Southwest Air Pollution Control Authority in Washington.



     The Washington Clean  Air Act of 1967 established, within



the State Department of Health, an Air Pollution Control Board



which is composed of nine  members appointed by the Governor.



Among the duties assigned  to  the Board by the 1967 Act were the



responsibilities to adopt  and enforce air quality goals and



emission regulations, to monitor air quality, and to'give technical



assistance to  local  programs within the State.  Amendments to the



law enacted during  1969 expanded and further defined the duties

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                                                       \ VTT/T4S
  HAR80K
PACIFIC
                   :'.  'Southwestf Air    ::
                    : Pollution IControl :;
                     :'  Columbia-Wi 1 lamett
                     :-'.Air Pollution
                         Authority
                            ?RS^?M/
               .        lamette
              ::;:Valley Air
              ^Pollution
               Authority
                                           JZSCHU7ES T
             Lane Regional Air .:
           Pollution Authority ::::
        Figure  8 .  Air Pollution Control
                      Authorities.

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 24






 of the Board.   It was given the authority to adopt air quality



 objectives (levels of contaminants  in the air below which




 undesirable effects will not occur),  air quality  standards  (levels



 of air pollution which shall not be exceeded), and emission



 standards (limitations on the release of contaminants into  the



 ambient air).   The State Board was  assigned responsibility  for



 enforcement of its standards except in areas where local programs



 are enforcing  standards which are at  least as stringent as  those



 of the State.   However, the State was directed to exercise  statewide



 control over emissions from certain categories of pollution



 sources if such control was determined to be in the public  interest



 and for the protection of the welfare of the citizens.




     One primary function of the State program has been to  foster



 the development of county and multl-county programs throughout



 the State.   To  serve  this end,  the  State program  may assist the



 various local programs with financial aid and technical assistance.



 One such program is the Southwest Air Pollution Control Authority



 which was formed in April,  1968, and  has Jurisdiction in the five




 counties  of Clark, Cowlitz,  Lewis,  Skamania, and Wahkiakum.



Administration  of the Authority is handled by an  eleven member



 Board of Directors.   The Authority has  the responsibility of



controlling the sources within its  five-county jurisdiction.




Coordination of activities  of the control  agencies in the Pacific



Northwest  is achieved through the Washington State Control



 Officers Association.   The  objective  is  to coordinate air monitoring,

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                                                                  25
data reporting, overall planning and control activities.



     The Oregon-Washington Air Quality Committee was established



by the Governors of the two States.  The purpose of the Committee




is to aid in coordinating control activities in the interstate



area.  The Committee consists of representatives from the Washington



State Air Pollution Control Board staff and the Oregon State



Sanitary Authority staff, with staff members of the Columbia-




Willamette Air Pollution Authority and the Southwest Air Pollution



Control Authority as advisory participants.  The Committee meets



monthly and works on inventories, standards, data exchange, and




sampling methods.








REGIONAL PLANNING IN THE STUDY AREA



     Planning in the Study Area is handled by eight planning



agencies, five of which are multi-county in scope.  Figure 9



shows the boundaries of the regional planning arrangements.



     The Columbia Region Association of Governments, CRAG,



consists of the four counties of Multnomah, Clackamas, Washington,



and Clark.  Membership is open to all cities within these counties,



and over 20 cities have joined.  CRAG serves as the regional



review agency for Federal financial grant application.  Its



activities Include comprehensive area-wide plans for sewage,




water, transportation, recreation facilities, land-use, and



other services.

-------
   S
SCALE:
 VILfS
                     T
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                      Lewis Regional Planning Commissions

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              • ••••*•••••;••••••••••ป•••# •• ปO • • • • • • ป • • • • • • • * • ••*••"*              g— - -^^
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                                                         ;
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                           U4sa
                                             xr^/v/>?7"/y
                                           ^x-o?
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     Portland Metropolitan

 ^7  Study QMHiaaton  CMSC}
     f91"?***??*^1
                              Figure 9.
                         Regional Planning agencies

                         in the Portland Study Area.
     Counties in both NSC and CRAG

-------
                                                                     27
     The Portland Metropolitan Study Commission was created



by the Oregon State Legislature in 1963 and serves the counties




of Clackamas, Columbia, Multnomah, and Washington.  Its main



functions have been the following:  "to determine the boundaries



within which it is desirable that one or more metropolitan




services be provided" and to prepare a "comprehensive plan for the



furnishing of such metropolitan services as it deems desirable



in the metropolitan area".  (ORS 199.230)  Originally it was



planned that the Commission would expire in June. 1969, but the



life of the Commission has been extended to June,1971.



     The Mid-Willamette Valley Council of Governments covers



Marion, Polk, and Yamhill Counties.  Besides the counties, the



membership also includes the State of Oregon, six cities, a school



district, and a fire district.  The Council was formed in 1967



by the merger of the Mid-Valley Planning Council and the Inter-



governmental Cooperation Council.  Areas of interest and activities



include land-zoning, transportation, urban renewal, comprehensive



plans for sewer and water facilities, and population studies.




     The Linn-Bent on Association of Governments (LBAG) has



representatives from Linn and Benton Counties and from four



cities in these counties.  The LBAG was organized in June, 1967,




and is now the official review agency for Federal funds in the




two-county region.  The Corvallis-Benton County Planning Agency



and the Linn County Planning Agency have contributed staff to




LBAG, which has Just recently taken on its first  full-time staff




member.  Among its activities are comprehensive health and law

-------
  28
 enforcement  planning.   There  is  a possibility that Lincoln County



 will  join LBAG In the  next  few months.



      The  Central  Lane  Planning Council was originally established



 in 1945 as the Central Lane County  Planning Commission.  The



 Commission was changed to the Council in 1961, and in 1964, it



 required  that  voting members  be  elected  officials.  The Council



 has initiated  or  supported  land-use, transportation, and long



 range development plans for the  urbanized portions of Lane County.



 It has also  worked in  such  areas as employment forecasts, zoning,



 park  development, and  urban renewal.



      In October,  1968, Wahkiakum County  joined the previously



 established  Cowlitz Regional  Planning Commission to form the



 Cowlitz-Wahkiakum Regional  Planning Commission.  The Commission



 is now the planning agency  for all  cities, towns, and counties



 in the Cowlitz-Wahkiakum Region.  The Commission has conducted



 studies of population,  urban  area economics, land-use, subdivision



 and zoning,  and building codes.  Other areas of concern are



 urban area sewer  and water  supply,  location of future schools,



 housing,  transportation, industrial land sites, and solid-waste



 disposal.



     Lewis County has  two commissions—the Lewis County Planning



 Commission and  the Lewis Regional Planning Commission.   The



 County Commission was  formed  in  1962 and is composed of nine



members, three  each from each commission district.  The prime



 function of  the County Commission Is to  review subdivision

-------
                                                                   29
plats and to hold work sessions on codes and ordinances for the



County.  The Regional Commission was formed in 1965 and has




representatives from the County and, at present, six cities.




The Commission's main purpose is to coordinate and approve planning



in the Region.



     The Skamania County Planning Commission was formed in 1967.



To date, it has no full-time staff.  The Commission deals with




platting regulations and is presently working on a comprehensive



land-use plan for the county.

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  30
                  EVALUATION OF ENGINEERING FACTORS


 INTRODUCTION

      The engineering evaluation for the Portland  Study Area was based

 on a study of topography,  meteorology,  air pollutant  emissions,

 pollutant diffusion, and air quality.   The emission inventory

 indicated the location of  point and area sources  and  quantity

 of pollutants emitted from these sources.   Emission densities

 were calculated from the emission quantities  and  grid zone areas.

 A qualitative evaluation of air quality was made  based on air flow

 and thermal stability.




 EMISSIONS INVENTORY

      The National Air Pollution Control Administration conducted

 an inventory of air pollutant emissions for the Portland Study
      a
 Area.    Five pollutants  were inventoried--total particulates,

 sulfur oxides,  carbon monoxide,  nitrogen oxides,  and  hydrocarbons.

 Only three  of these--total  particulates,  SO^, and CO--are considered

 in this  report,  since these pollutants  provide an indication of

 the general air pollution problem.   Particulate emission levels

 indicate primarily  the location and  extent  of pollution emanating

 from industrial,  power,  incineration, and heating sources.

Levels of sulfur oxides  illustrate the  Impact of  fuel  burning

activities  at  stationary sources.  Levels of  carbon monoxide

show the  impact  of  gasoline-powered motor vehicles on the regional

air pollution pattern.  A summary of the emissions inventory

-------
                                                                    31
by jurisdiction and source category is given in Table II.



     Figure 10 breaks down the total emissions into percent



contribution by the various source categories.  Process losses



contribute 48% of all sulfur oxide emissions.  Most of these



emissions come from the kraft pulping, aluminum, and wood products



industries.  Fuel combustion accounts for 39%, transportation



for 11%, and refuse disposal for 2% of sulfur oxide emissions.



Process losses also contribute most of the particulate emissions



(65%).  Besides the kraft pulping, aluminum, and wood products



industries, high process emissions are found in the cement,



grain, and foundary industries.  Emissions from Wigwam-type



burners are also included under process losses.  Slash and field



burning account for 15% and refuse disposal for 11% of particulate



emissions.  The remaining 9% eminate from transportation and fuel



combustion sources.  Transportation sources account for the



majority of carbon monoxide emissions in the Study Area (69%)



since the motor vehicle is the main contributor.  Wigwam-type



burners contribute most of the 14% shown under process losses, and



slash and field burning contribute 11% of the carbon monoxide



emission load.



     Figure 11 shows the percent contribution to the total emissions



of particulates, SQ^, and CO by the counties making up the four



regional air pollution control agencies (see page34).



     Eighty-six percent of the Study Area's sulfur oxide emissions



are from the nine counties in the Columbia-Willamette and the

-------
32
                                                       Sunary of Brtialoni from the Portland Study Area
                                                             by Source Category (Ton* per year)
           County

           Clark
           Cowllta
           Lavls
           SksHanla
           Colu
        9 MultnoMh
        -i Beaton
        ซ Marlon
           linn
           Polk
           Washington
           Clark
           Cowllti
           Lewie
                         Total*
           Hahklakum
        •  Columbia
        •  Clackanaa
           Hultnomah
           Banton
           Marlon
           Lino
           Folk
           Yeafalll
**
1
                             Total Fuel
                             Coabuetlon
                                  152
                                  858
                                  816
                                   71
                                   52
                                  857
                                  485
                                  284
                                  342
                                  834
                                  417
                                   91
                                  273
                                1,062
                                  591
11
           Washington
19,183

   245
    98
    89
     7
     6
   139
   177
 1,444
    49
   152
   116
    25
    54
   199
   106
  Industrial
Process Loaaaa

    10,475
     8,604
         7
         7
         1
       408
       299
     2,065
        14
       803
        56
         7
       804
       431
         0

    23,981

     7,104
    12,132
       437
       255
        51
     3,432
    11,563
    15,396
     3,659
       599
     8,770
     1,789
     2.120
     9,839
        45
Transportation

      277
      170
      139
       13
        8
       64
      324
    2,390
      107
      399
      314
      101
      117
      539
      274

    5,236

      538
      314
      257
       25
       15
      119
      548
    2,586
      209
      740
      648
      176
      202
    1,115
      481
 Refute
Disposal

  130
   25
   21
    3
    1
   14
  130
  300
   27
   99
   23
   19
   23
  204
  118

1.137

1,529
  360
  241
   44
   21
  176
1,529
2,399
  337
  829
  243
  234
  287
2,949
1,485
                                                                        Mlseallanaous
                                                                       Field and Slash
                                                                           Burning
  14
1,328
  134
1,414
2,042
6,546
1,093
  706
4,155
   95
 Total

12.034
 9.637
   983
    94
    62
 1.343
 1,238
16,039
   490
 2,135
   810
   218
 1.217
 2.236
   983

48,539

 9,416
12.904
 1,024
   331
    93
 3,880
15,145
21,959
 5,668
 4.362
16.323
 3,317
 3,369
18,257
 2.212
                                Contribution
                                  By County

                                    24
                                    19
                                     2
                                     3
                                     3
                                    32
                                     1
                                     4
                                     2

                                     2
                                     5
                                     2
                                                                                                                                              8
                                                                                                                                              11
 3
13
18
 5
 4
14
 3
 3
15
 2
                        Totali
          Washington
                               2.906

                                  20
                                  12
                                  11
                                   1
                                   0
                                  11
                                  19
                                 188
                                   7
                                  24
                                  11
                                   5
                                   7
                                  27
                                  16
                 77,191

                    482
                 11,387
                  9.489
                  9,489
                  1,897
                    285
                  4,990
                    556
                 22,001
                  1,172
                 33.639
                 11,281
                  2,399
                 28,762
                  1,630
                      7,973

                     47,253
                     30,581
                     25,069
                      2,433
                      1,524
                     11.739
                     68,110
                    180,156
                     17,446
                     72,160
                     43,531
                     20.466
                     23,810
                     93,014
                     62,239
                   12,663

                    7,899
                    1,894
                    1.239
                      234
                      156
                      917
                    7,899
                   12,899
                    1,749
                    4,089
                    1,241
                    1,216
                    1.493
                   15.534
                    7,720
                                                                                                                17.527
                      95
                    8.386
                      860
                    8,998
                   12,898
                   41,442
                    6,901
                    4.490
                   26,578
                      729
               118,260

                55,654
                43.874
                35,808
                12,157
                 3,377
                13,047
               119.419
               194,659
                50,201
                90.343
               119,864
                39,869
                32,199
               163,915
                72,334
                   5
                   4
                   3
                   1

                   1
                  11
                  19
                   5
                   9
                  11
                   4
                   3
                  16
                   7
                        Totals
                                 359
                139,459
                    699,531
                   66,179
                                                                                                               111,377
                                  1,046,920

-------
      Sulfur Oxides
TOTAL: 49,539 tons/year
        Carbon Monoxide
    TOTAL- 1,046,920 tons/year
                                                  Process Losses (includes
                                                   wigwam-type burners)

                                                  Fuel  Combustion

                                                  Transportation


                                                  Refuse  Disposal
                                                 Misc.  (includes  field  and
                                                   slash burning)
                                                                             33
                                                 Particulates
                                              TOTAL: 118,260 tons/year
                                              Figure 10.  Emissions of
                                                Sulfur Oxides, Particulates
                                                and Carbon Monoxide in the
                                                Study Area by various
                                                Source Categories.

-------
34
Southwest Air Pollution
Control Authority  Lewis,
Wahikakum, Cowlitz, Clark,
and Skamania Counties)
Columbia-Willamette Air
                    (Columbia,
                                                                             tun, and
     "olumbia-Willamet
     pollution Author!
     lultnomah, Wasliin
     Clackaraas Countie
A     Mid-Willamette Valley Air
        lution Autnon   VFOIK,
     Bentpn, Yamnill, Marion,

A
                                                           and  Linn  Counties)
                                                           Lane Regional  Air Pollution
                                                           Authority  (Lane  County)
                    Sulfur  Oxides
               TOTAL" 49,539  tons/year
                                                           Particulates
                                                         TOTAL:  118,260  tons/year
                                                        Figure  11.   Percent  Contribution
                                                         to  Emissions  of  Particulates,
                                                         Sulfur Oxides, and  Carbon
                                                         Monoxide by the  Air Pollution
                                                         Control Authority Jurisdictions.
                                                         (For a breakdown by county,
                                                          see Table 11.)
                Carbon Monoxide
            TOTAL:  1,046,920  tons/year

-------
                                                                  35






Southwestern Washington Regions.  The participate loading is more




evenly distributed by region with the Columbia-Willamette (4 counties)




contributing 36%, the Mid-Willamette Valley (5 counties), 28%,




Southwestern Washington (5 counties), 20%, and Lane County, 16%.




The ten Oregon Counties contribute 86% of the carbon monoxide




emissions, since most of the population (and therefore motor vehicles)




are located there, and most of the slash and field burning is found there,




     Grid coordinates based on the Universal Transverse Mercator




System were used in the inventory to aid in determining the location




of sources and emissions.  As shown in Figure 12, the Study Area




was divided into 71 grids of three different sizes--100, 400, and




1600 square kilometers.  The estimated annual emissions of each of




the three contaminants by grid zone were converted to daily emissions




for average, maximum, and minimum space-heating days.  Average




emission densities were determined by relating the total quantity




of pollutants emitted in each of the grid zones to the land area




of each zone.  The estimated emission densities by grid zone for




average space-heating days are shown in Figures 13, 14, and 15.




     Highest emission densities of sulfur oxides are found in the




Portland, Longview, Salem, and Eugene areas.  The same is true of




particulates.  Particulates and carbon monoxide emissions appear to be




more widespread than sulfur oxides, especially in the Oregon section




of the Suudy Area.  Major point sources in the Study Area are shown




in Figure 16.  The sources shown emit more than one ton per day of




sulfur oxides or particulates,or more than 10 tons per day of carbon



monoxide.

-------
  36
Figure 12.  Emissions
  Inventory Grid System.


-------
                                                                                37
                                                                         ป
                                            LEWIS
                     I WAH
                                                 /
WAHKIAKUM

    \
Figure 11.   Mean Daily Density  '
    of Sulfur  Oxides Emissions
    in the  Portland Stduy Area
tons/mi, /day

     >0.5


      0.1--0.5


      0.05--0.1


      0.01--0.05


     <0.01
               C 0 rf L I T Z
                               T
S K  A M A N I  Ai
                              MULTNOHAH ป
                                                                    L
                                        LINN
                   JB E N T 0 N C
                               V    /
          A
          L  /
                  LANE
    	 \
        *
         \
         I
        (

       ^
  ..o
       <
        I

   -- /

      /
      I
      \
      \
  ~ - ^
       1
       ;
       r
    /

   /
  i
                                                       r
                                                       i
                                                    ,, -J

-------
   38
                                                  LEWIS
                        JWAHK1AKUM
Figure 14.  Mean Daily Density\
    of Particulate Emissions    *>^
    in the Portland Study Area   •

                                 I
TONS/Mi. /DAY

    |>0.5


      0.1---0.5

      0.05--0.1

      0.01--0.05
SKA MANIA

-------
                                                                                       39
                                                       LEWIS
                            WAHKI
                                \;
  Figure 15.  Mean Daily Density  V
     of Carbon Monoxide Emissions
     in the Portland Study Area.
Tons/Day/Mi.'


      • 3


      2---3


      1---2






      M
IS K A M A  N  I A  f

                  I
                                                                                     *
                                                                               •

-------
    40
                                 r
                                                                               •
                        IWAHKIAKUM
Figure 16.   Location of Major
    Point  Sources  in the Portland
    Study  Area  ( Each source      i
    shown  emits more than 1 ton/  |
    day of  sulfur  oxides or       j
    particulates,  or more than
    10 tons/day of carbon monoxidei
Type of Source
  • -Industry

  • —Dump

  ^-Airport
                                              LEWIS


                                       COWLITZ   JSKA

                                                            I

                                           \
                                    MANIA
                                                                               )
                                             V
                       ARK
                                            r
,' WASHINGTON
  	^

                                                        MULTNOMAH
                                                                ;f
                                                                    \
                                                      A  C  K  A M  A
                                               MARION
                                               LINN
                                                                    \
                                       LANE
                                                                I

-------
                                                                     41
DIFFUSION AND AIR QUALITY



Introduction

                                     q
     A meteorological diffusion model  is generally employed


in an engineering evaluation to determine the extent of the air


pollution problem.  Source locations, an emission inventory and


meteorological data, particularly wind direction frequencies


and thermal stability characteristics of the atmosphere, are the


major input factors of the model.  The model gives fairly good


results in areas where the terrain is flat and there are no major


topographic features.  However, the high mountains to the east


and west of Portland and the valleys of the Columbia and Willamette


Rivers have such marked effects on the flow patterns and stability


of the atmosphere that the model cannot be satisfactorily employed


in the Portland area.  Discussions of air flow patterns and thermal


stability and a qualitative evaluation of the extent of the


pollution problem are substituted for estimates from the diffusion


model.  (The location of major sources and emission inventory


are discussed in the preceding section.)




Topography and Air Flow


     Portland is about 65 miles east of the Pacific coast at


the confluence of the Willamette and Columbia Rivers.   The city


is midway between the north-south oriented coast range  on the


west and the higher and parallel Cascade range on the east,

-------
 42
each about  30  miles  distant.   The Columbia River flows  through


both of these  ranges within narrow gorges.   Figure  17 shows the


area and displays  elevations  above 2000 feet.


     In evaluating the air flow in the Columbia River Valley,
                                                 : |

data from the  following locations are considered:   a) the Dalles


at the  eastern end of  the  gorge in the Cascades; b)  Portland,


where the downriver  flow changes from westward to northward;


c) Kelso, where the  direction changes from northward to westward;


and d)  Astoria,  at the mouth  of the river.   The flow in the broad


Willamette  Valley  is evaluated through observations from  the


following locations:   a) Eugene, at the south  end of the  Valley;


b) Salem; c) Portland,  and d)  Kelso.   The Cowlitz Valley  to the


north of Kelso is  a  straight  extension of the  valley in which


the Columbia River flows northward, so observations from  Toledo,


Washington, near the point where the Cowlitz River  starts its


southerly flow toward  the  Columbia River,  are  included.   Data


for each mid-season  month  are presented.


     The prevailing  surface flow in January, as shown in  Figure


18, indicates  that there is a general movement from east  to west in


the Columbia River Valley  and from south  to north in the  Willamette-


Cowlitz  Valley areas.   This northward flow is  so frequent and


persistent  that  a  backward trajectory technique demonstrates that


many air parcels eventually found over Portland and Kelso were


at one time over Eugene.


     In April, the prevailing surface flow is  more  complicated


than that of January (Figure  19).   The flow is upvalley in the

-------
                                       .—•"—*—	1
                                        - •

Figure 17.  Portland Study Area Topography

(Shaded areas show elevations over 2000 feet)

-------
                                           1
              	ir- --  •     LEW/S    |S
              tunA i -i n*  1'• •  —- — •	A*
;  2111


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                                              ;>  .^,.;-0^]x--  '      :,:;.:••'
       r—J       ~~     /
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                                            •>:-:Vx;::::x:x:y:-:-::x:x-::x:Xv'<::->::':x-:':^::>>>>;'.'::x-x- -t_
                                            x-x':':-:-x:x::^:-::x::-::x:x'x:::::.:::::': '••:::':::':::'-::: • ::>x:.:::x::-:-'
                        i
     L
                           	,-
               30UGUIS
                                                    >v
           Figurซ 18.   PcwvAiliog Fiona. January


                                                of  Flikft

-------
                                                       •'•'.•I-','.': •"• '•'•X-X'I*Xป!>X'X*X*XvX'.i^!*!'!'? * !*' ?.>'•-


VJ
k


      LIKlCOLfJ  !"'..     \
              rปJ          ^
                         ป'

          k   0E.UTOU   i

                          I,
         u
                             	j.v
                                      - - -^— -.y-i;ivi;;<ซ'ปป). • •' ;!  _.;; •••";" . :•' ''-'vX'X'X
                Figure  19.   PMvailing Flows,  April


                Arrows  Indicate  Direction of Flow
                     Primary
Secondary

-------
 46
Columbia River  Valley.   The most frequent flow in the  Cowlitz



Valley is upvalley but  downvalley flows  are also frequent.  In




the Willamette  Valley the movement for the most part is  downvalley,



and somewhere between Portland and Salem, flows from opposing



directions meet.




      The prevailing surface flow in July is practically  the



reverse of that of January (Figure 20).   Air movement  is upvalley



in the Columbia River Valley and from north to south in  the Cowl it z-



Willamette Valley area.




      In October (Figure 21)  the prevailing surface flow  is similar



to that of April.   The  most frequent flow in the Willamette-



Cowlitz Valley  is northward.   In the Cowlitz Valley downvalley



flows are a little less frequent than the upvalley flows.  The



air movement in the Columbia River Valley, except at the Dalles,



is mostly downvalley.   At all stations from Portland to  the



Coast there are important secondary flows, and these are in a



general upvalley direction.




      Since valley locations often show two opposing wind flows



on a  diurnal basis,  data from Portland were examined to  see if




such  diurnal variation  could account for the observed  dual




flows  at some stations.   Prevailing winds for midnight to 5:00



A.M. were compared with those for noon to 5:00 P.M.  The results




are shown in Table III.

-------
               •y WKtXJK.                   "-V
   k
SCALE:
 V/i^S

                                         •:": ^                       - ^iiii*!*^
                                            J ii i::' • :' :    -i:: ^
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                                           A: ..::.   •.
                                              tf
             V
                                   r
           TILLAMOOK'. }•
^


                                                      .
        L1UCOLU
               J

             r
            ^  Sฃ.MTOU  '<
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          	f-:t
                   OOUGi-AS
                   Figure 20.  Prevailing Fiona,  July

                   Arrows Indicate Direction of Flow
                         Primary        Secondary

-------
48
               (jKAYS HAKBOK

                  PACIFIC  ]
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                  -T	r-vx
               C   0LNTOU
                J—•^•-s— - 	 .
                                                   .-x::': ivivi'wiwiv :: : :. : : : : : :: : V

                                                                                .
                                           ^^^^:$:g5|^|x||^||;:::iS:::: • :.j^. i. >;; |  I

                                                ....:x:x:::::x:x:x;;:>::^:;x;x;:x:;:;:::.,:;:::::: ^::: •*!:•;.:
            u
                              i
                                 	f

                                              '

. "•



j:|;;
                        Figure 21.  Prevailing Flows,  October


                         Arrow*  Xndicat* Dtrtction of  lion
                               Prlnan

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                                                                      49
           Table III.  Prevailing Winds*, Portland, Oregon
                                  Directions and Percent Frequency
                              (Based on data supplied by C. Hopper)

Month/Time                    0000-0500                1200-0700

January-Most Frequent         ESE 48                   ESE 45
        Next Most Frequent    SSW 24                   SSW 25
          Calms (%)             9                        5

April-  Most Frequent         ESE 22                    NW 39
        Next Most Frequent     NW 22                    SW 17
          Calms (%)             22                       15

July-   Most Frequent          NW 52                    NW 75
        Next Most Frequent    SSE 8                    SSW  6
          Calms (%)             17                       1

Oct.-   Most Frequent          SE 30                    NW 32
        Next Most Frequent    SSW 20                    SE 25
          Calms (%)             23                       5

* 3 sectors wide centered on indicated sector, based on 16 point
compass.
In January there is little change from morning to afternoon

indicating that there is practically no diurnal variation in

winter.  There is a considerable increase in NW winds  and decrease

in SE winds from morning to afternoon in April, indicating that

there is a marked diurnal shifting of the wind.  This  is  assumed

to indicate that the stations showing dual, almost  opposing,

flows in Figure 19 (April prevailing flow data) also experience

this daily back and forth movement of air in their  area;  the flows

are primarily downvalley in the morning and upvalley in the

afternoon.  In July there is a marked increase in the  frequency

of NW winds from morning to afternoon.  This indicates that at

times during the night the flow becomes so light that  it  is

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 50
undetectable by the  instruments,  or variable; but  there  is no

marked reversal of flow  from night to day.   The  air movement during

July is thus fairly  persistent  in one direction.   In  October there

is only a slight decrease  in the  frequency  of SE winds from morning

to afternoon.  As in April,  the change  in the most frequent flow

is from downvalley in the  morning to upvalley in the  afternoon.

     Since movement  of air within the first few  thousand feet  of

the surface is important in  air pollution evaluations, a summary

of these data for Portland is shown in  Table IV.
   Table  IV.   Prevailing Winds,  and Winds Aloft,  Portland,  Oregon
               (Winds Aloft Data  from Airway Meteorological  Atlas
              	for the United  States  U2~] ) .	
Height / Period  Dec-Jan-Feb  Mar-Apr-May  June-July-Aug   Sept-Oct-Nov

   m     (feet)
Surface              ESEZ          NW2           NWZ             SEZ
 500     (1640)        E          NNW           NNW            NNW*
1000     (3280)      SSW           SW           NNW              SW
2000     (6560)      SSW           SW           WSW              SW
3000     (9840)       SW          WSW            SW            WNW

z - midseason month data
* - E winds are almost as frequent


It is obvious that most of the year there is  one wind regime  in
                                                              *
the layer from the surface to some height between 1640 and 3280

feet and that there is another wind regime above.  This phenomenon

appears to be related to the stability characteristics of  the

atmosphere (discussed in the next section).   A  study12 now in

progress is obtaining additional data.   On December 5, 1969,

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                                                                   51
the investigators found that there were weak winds from the surface



to 1000 feet, a strong easterly gorge wind between 1000 and 3000




feet and W-SW winds above 3000 feet.  The easterly gorge wind is



practically restricted to the winter.  When it occurs it changes



a complicated two-layer flow into a very complicated three-layer



flow.  These drastic changes in direction with height, complicates



the problem of trying to make a model of the atmosphere.  Diffusion



evaluation would be most difficult to make if these changes in



direction with height had to be taken into account.  However,



as explained in the following section, vertical mixing is very



frequently restricted to the lower 2000 to 3000 feet and movement




in the upper layer does not have to be considered.








Thermal Stability



     The stability characteristics of the atmosphere give an



indication of the depth through which vertical mixing takes



place.  When the temperature increases with height, an inversion



of temperature is said to exist.  When the inversion layer is



based at the surface and sufficiently deep, effluents generally



tend to spread out horizontally in a flat layer, or initially



rise for a time (until they lose their buoyancy) and then spread



out.  Inversions are described as being thermally stable.  If



the inversion layer is aloft, the base of it acts as a lid and



inhibits vertical mixing up into the inversion.  An opposite




effect is caused by a superadiabatic layer in which the adiabatic

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 52
lapse rate  (a decrease  In temperature with height at the rate of

5.4ฐF per 1000  feet)  is exceeded.   In a superadiabatlc  layer,

conditions  are  unstable,  vertical  motion is  constant and vertical

mixing  is considerable.  In a neutrally stable layer, i.e., one

with an adiabatic  lapse rate, parcels tend to remain in place or

if displaced up or down by an outside force, will move  only as

long as that force is applied.  A  layer which shows no  change of

temperature with height is called  isothermal, and vertical air

movement in such a layer  is similar to  that  in an inversion.  Layers

showing a decrease in temperature  with  height but a decrease less

than adiabatic  are also stable and exhibit little vertical mixing.

     Over undeveloped,  rural areas radiation or  surface based

inversions  readily form around sunset when the skies are clear

and the winds light.  In  built-up  areas, the frequency  of surface

based inversions is not as great,  and often  an inversion base

is displaced a  few hundred feet from the surface.  A seasonal

summary of  the  percent  frequency of inversions at or within 500

feet of the surface in  the Portland area is  shown in Table V.
      Table V.   Percent Frequency of Inversion And/Or  Isothermal
                 Conditions, Baaed on Below 500 Feet Above  Station
                _________ Elevation -  Portland-Salem Area

Time P.S.T.
Season

Winter
Spring
Summer
Fall

From:  C. R. Hosier's Low-Level Inversion  Frequency in the Contiguous
       United States (8).
4 AM
51
63
74
71
7 AM
41
20
3
43
4 PM
8
1
0
2
7 PM
36
19
14
49

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                                                                     53
It is seen that low-level inversions are present over half of

the nights in each season.  Another investigator using only the

Salem data fround that stable layers with bases at the ground occurred

877. of the time at 4:00 A.M.1*  In the afternoon, as shown by the

4:00 P.M. data in Table V, the inversions are eliminated almost

everyday.  It should be remembered that these nocturnal inversions

are generally present for several hours or more each time they

occur, whereas the maximum mixing depth, which is discussed in

a following paragraph, is a phenomenon lasting an hour or less in

time.

     The data on surface based, or low-level inversion, indicate

the frequency of the stable extreme in vertical mixing.  This

extreme is generally eliminated shortly after sunrise; at times

in winter it may be noon or 1:00 P.M. before the inversion Is

eliminated.  The other extreme occurs when the sun heats the ground

and ground-based adiabatic or superadiabatic layer is formed and

gets progressively deeper until a maximum depth is reached during

the afternoon.  Holzworth^-5 used a standard technique for computing

mean miHHnyim mixing depths for Portland and his results are shown

in Table VI.



   Table VI.  Computed Afternoon Mean Mixing Depths  - Holzworth  (6)

                                                      •
               Season                   Height in Feet

               Winter                        1970
               Spring                        4920
               Summer                        5250
               Autumn                        3610

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  54
Since  It  Is well documented1**  that  subsidence  inversions or inversions



aloft  occur over the Willamette Valley and  sections of the Columbia



River  Valleys,  these computed  mixing depths have  to be compared



to  observations of inversion base heights.  Cramer,   through



temperature profile observations obtained from an aircraft, has



found  that the  inversion generally  has bases between  2000 and 3000



feet above the  surface.   He  reported18 that these observations



are further confirmed by his observations of air  pollution



plumes in the area; these plumes generally  have tops  of 2000



to  3000 feet above the surface.  These temperature and air pollution



plume  observations are more  in agreement with  the winds aloft



(TableIV) than  the computed  mixing  depths;  the winds  aloft



indicate  that the  winds  associated  with the subsidence, SW, are



at  lower  levels than the computed mixing depths.  It  thus appears



that a base about  2000 to 3000 feet above the  surface most



frequently limits  the vertical mixing  on most  days of the year,



and that  during the summer vertical mixing  is  probably a little



greater than 3000  feet.



     The  air flow  patterns indicate that air parcels  are readily



transported long distances in  a north  or south direction in the



Willamette Valley.  In the Columbia River Valley, east and west



flows  predominate  to the east  of Portland and west of Kelso but



the net transport  in one direction  is  not as great as that in



the Willamette Valley.   The  poor vertical mixing which occurs



on a majority of nights  combined with vertical mixing restricted



to 3000 feet or less on  most days aggravates any pollution

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                                                                  55
problem because these phenomena allow for little dilution in the



vertical.



     Relating the potential diffusion discussed above to the sources



of the area, the following are found.  Pollution from a number



of major point sources in the Kelso-Longview area^ could be expected



to readily reach places in Cowlitz, Columbia, Clark, Washington,



and Multnomah Counties.  Pollution from the numerous major sources


                               19
in the Portland-Vancouver-Camas   area would affect the air quality



of Multnomah, Skamania, Clark, Cowlitz, Columbia, Washington,



Clackamas, Yamhill and Marion Counties and possibly Hood River



County.  Pollution from the area-wide agriculture burning during



the summer of approximately 300,000 acres in the area south of



Salem generally contaminates the whole southern end of the



Willamette Valley, including Marion, Polk, Benton, Linn and



Lane Counties.  Evidence of the magnitude of this problem was


                         20
given on August 12, 1969.    The situation became so bad in



Eugene that a temporary ban was put on agricultural burning



in the area.  Paper plants ringing Corvallis are also major



sources of pollution in the southern end of the Willamette



Valley and cross-county air flow causes them to offend neighbors



in other counties.



     Thus, it appears that there is mutual responsibility for



air quality in the Willamette Valley by all counties in the



Willamette Valley and Columbia, Clark, Cowlitz and Skamania County.

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56
                       THE  PROPOSED REGION


     Subject  to the  scheduled consultation, the Secretary,

Department  of Health,  Education, and Welfare, proposes to designate

an air  quality control region for the Portland area, consisting

of the  following  jurisdictions:

          In  the  State of Oregon:            In the State of Washington:

Benton  County         Marion County              Clark County
Clackamas County       Multnomah County           Cowlitz County
Columbia County        Polk County
Lane County           Washington County
Linn County           Yamhill County


     As so  proposed, the Portland Interstate Air Quality Control

Region  would  consist of the territorial area encompassed by the

outermost boundaries of the above jurisdictions and the territorial

area of all municipalities  located therein and as defined in Section

302(f)  of the Clean Air Act, 42 U.S.C. 1857th(f).  Figure 22

shows the boundaries of the proposed Region while Figure 23

indicates the geographic relationship of the Region to the

surrounding area.



DISCUSSION  OF PROPOSAL

     To be  successful, an air quality control region should

meet three  basic conditions.  First, its boundaries should

encompass most of the  pollution sources as well as most of the

people  and  property affected by those sources.  Second, the

boundaries  should encompass those locations where Industrial

and residential development will create significant air pollution

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Figure 22.  Proposed Boundaries of the Portland Interstate Air
     Quality Control Region (Cfre^dn-Washington)

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58
                                            Puget Sound Air Quality
                                               Control Region
                                                              Spokane--Coeur d'
                                                                           Alene
                                                                        Clarkston
                                                                         PulIman
WASHINGTON
Lewiston-
 Moscow
                                         Proposed Portland Interstate
                                         Air Quality Control Region
                                            (Oregon-Wash ington)
                                                                            Boise City
                      CALIFORNIA
               \  M\  ^San Francisco Bay Area
                      Air Quality Control Region

                                            Figure 23.  Relationship of Proposed
                                                  Portland  Interstate Air Quality
                                                  Control Region  to Surrounding
                                                  Areas.
                                                 -Announced  Areas for  Future Air Quality
                                                  Control  Region Designation
                             S  V

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                                                                       59
problems in the future.  Third, the boundaries should be chosen



in a way which is compatible with and even fosters unified and



cooperative governmental administration of the air resource through-



out the region.  The "Evaluation of Engineering Factors" (discussion



beginning with page  30) discussed the first of these conditions,



and the "Evaluation of Urban Factors" (page  ij), the second and



third.  The determination of regional boundaries requires that



both urban and engineering factors be considered.  The' boundaries



chosen should create a cohesive combination of Jurisdictions suitable



for region-wide administration of an air resource management program.



     The rapid-survey emissions inventory gave estimates of emission



quantities and emission densities, and the location of point



sources In the fifteen-county Study Area.  Highest emission densities



of sulfur oxides, particulates, and carbon monoxide are found



in or near  the cities of Kelso-Longview,  Portland-Vancouver, Salem,



and Eugene.  Carbon monoxide and particulate densities, however,



are fairly evenly spread throughout the Oregon portion of the



Study Area.  Most of the major point sources are located in



Multnomah, Cowlitz, Linn, and Lane Counties.



     The analysis of diffusion in the Study Area indicates that



all counties in the Study Area, with the exception of Lewis and



Wahkiakum, could be readily expected to be receptors of pollution



from sources in the Kelso-Longview area, the Portland-Vancouver-



Camas area, or the area south of Salem where agricultural burning



takes place.

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60
     The proposed twelve-county Region has a population of over



1,600,000 people which represents approximately 97% of the people



in the Study Area.  There are three main centers of population



in the area:   Portland-Vancouver (Clark, Washington, Clackamas,



and Multnomah  Counties), Salem (Marion County), and Eugene (Lane




County).  The  Oregon portion of the proposed Region includes about



70% of the  total population of the State, and  the Washington



portion represents  over 5% of the population of Washington.



     The proposed Region allows for both population and industrial



growth in the  future.  Major population growth is expected to



occur in the metropolitan areas of Fort land-Vancouver, Salem,




and Eugene  (Clark,  Multnomah, Washington, Clackamas, Marion,



and Lane Counties^  The remaining six counties are also projected



to have shown  population increases from 1960-1980 ranging from



34% in Cowlitz County to 86% in Folk County.



     The third objective, that existing regional jurisdictions



be considered, is most difficult to meet.  The Oregon portion



of the proposed Region includes three regional air pollution



control authorities, and all ten counties are  included in the



authorities (see Figure 8).  There are five regional planning



groups in the  Oregon portion, and none of these agencies has




jurisdiction outside the proposed Region boundaries.  In



Washington, only two of the five study area counties are proposed




for inclusion  in the Region—Cowlitz and Clark.  Most of the




population and industry are located in these counties.  Inclusion

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                                                                  61
of the remaining counties In the Southwest Air Pollution Control



Authority seems unnecessary due to their relatively low population



densities and growth projections and the lack of large pollution



sources.  Cowlitz County has added Wahkiakum County to its Regional



Planning Commission.  It is the policy of the Planning Commission,



however, to cooperate with all State, Federal, and local air


                                21
pollution authority commissions,   so there should be no conflict



in having only Cowlitz County in the Region.



     The final decision on the inclusion or exclusion of Lewis,



Wahkiakum and Skamania Counties, however, will be made only after



careful review of comments submitted to the Consultation record



by State and local officials.  Should they be excluded from the



Region at the present time, they should nevertheless be observed



carefully and added at a later date if it appears that the air



pollution menace is growing due to increases in population and



industry.



     The boundaries proposed in this report for the Portland



Interstate Air Quality Control Region will serve as a starting



point for discussion with State and local officials at the scheduled



Consultation.

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  62
                           REFERENCES
 1.  Commercial Atlas  and  Marketing Guide.  100th Edition,  Rand-
     McNally and  Company,  1969.
                                                     i
 2.  "Population  Growth  in the Mid-Willamette Valley"  Staff Papers:
     Population,  Annual  Series,  Issue  Mo. 4,  January,  1970,  Mid-
     Willamette Valley Council of Governments.

 3.  "Population  -  Economics  - Land Use", Cowlitz-Wahkiakum Regional
     Planning Commission,  Cowlitz County Courthouse, Kelso,  Washington,
     October, 1968.

 4.  "Population  and Employment,  Technical  Appendices",  excerpts
     from:   Eugene-Springfield Metropolitan Area Preliminary 1990
     General Plan,  Central Lane  Planning Council,  1969.

 5.  "Employment  and Population  Projections to Year  2000",  Portland-
     Vancouver SMSA, Columbia Region Association of  Governments,
     Portland, Oregon, August, 1968.

 6.  "Population  Forecasts, State of Washington,  1965  to 1985,"
     State of Washington,  Department of Commerce and Economic
     Development, Olympia,  Washington,  1966.

 7.  "Population  Bulletin", Release Number  P-9,  Oregon State Board
     of Census, Portland State College,  Portland,  Oregon,  October,
     1963.

 8.  "Rapid  Survey Technique  for Estimating Community  Air  Pollution
     Emissions,"  PHS  Publication No.  999-AP-29,  Environmental
     Health  Series, USDREW, NAPCA,  Cincinnati, Ohio, October, 1966.

 9.  Martin, D. 0. and Tlkvart,  J.  A.  -  A General  Atmospheric
     Diffusion Model for Estimating the  Effects  on Air Quality of
     One or  More  Sources,  Paper  No. 68-148, 61st Annual  Meeting,
     APCA, St. Paul, Minnesota,  June 1968.

10.  Hopper, C. - (Personal Communication)  Letter of  January 14,
     1970, Including wind  rose data for  each  three-hour  period
     of each midseason month.

11.  U. S. Weather Bureau  - Airway Meteorological  Atlas  for the
     United  States.  W.B. No. 1314, U.  S. Department of  Commerce,
     New Orleans, La., 1941.

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                                                                     63
12.  Olsson, L. E. - Proposed Work Plan—Investigation of Natural
     Ventilation of the Portland Area and the Willamette Valley.
     Department of Atmospheric Sciences, School of Science and Air
     Resources Center, Oregon State University, Corvallls, Oregon,
     January 1970.

13.  Hosier, C. R. - Low-Level Inversion Frequency in the Contiguous
     United States.  Monthly Weather Review 89 (9):  319-339,
     (September) 1961.

14.  Oregon State Board of Health - Air Pollution in the Portland
     Metropolitan Area, September, 1963.

15.  Holzworth, 6. C. - (Personal Communication)  Letter on computed
     mixing depths over the United States, April 15, 1969.

16.  Cramer, 0. P. and R.  E. Lynott - Cross-Section Analysis in the
     Study of Windflow over Mountainous Terrain.   Bulletin American
     Meteorological Society, 42 (10), 693-702, (October) 1961.

17.  Cramer, 0. P. - Implications of Atmospheric Potential Temperature
     Structure on the Distribution of Aerosols in Western Oregon.
     Paper presented at Pacific Northwest International Section
     Meeting, Air Pollution Control Association,  Salem Oregon,
     November 9, 1967.

18.  Cramer, 0. P. - (Personal Communication) Letter on movement
     and depth of polluted layers west of the Cascades, October 18,
     1968.

19.  Hendrickson, E. R., Kengy, D. M., and R. L.  Stockman - Evaluation
     of Air Pollution in the State of Washington.  Robert A. Taft
     Sanitary Engineering Center, Cincinnati, Ohio, 1957, 145 p.

20.  Colby, R. - (Newspaper Article) Eugene Becomes 'State of Anarchy1
     As Battle on Field Burning Rages.  The Sunday Oregonian,
     August 17, 1969, p. 34.

21.  "Regional Planning Scope and Purpose," Cowlitz-Wahkiakum
     Regional Planning Commission.

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