GUIDELINE SERIES
OAQPS NO. 1.2-002
GUIDANCE FOR WRITING OF
TRANSPORTATION CONTROL PLANS
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US. ENVIRONMENTAL PROTECTION AGENCY
Office of Air Quality Planning and Standards
Research Triangle Park, North Carolina
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/BJECT: Transportation Controls
UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
Office of Air Quality Planning and Standards
Research Triangle Park, North Carolina 27711
DATE:
March 12, 1973
FROM:
TO:
Ronald A. Vcnezia, Chief
Land Use Planning Branch
XV* i/
Air and Water Program Directors
Regions I-X
At the Kansas City regional meeting on February 9, 1973, it was
indicated that the OAQPS would assist the Regions with guidance in
the preparation of transportation control plans that must be proposed
and promulgated by EPA.
A review of the SIP task schedule sent to you on February 23
points out the extremely short time period available for the prepara-
tion of EPA plans after a decision is made as to whether or not the
State plan is acceptable. To fully think out, prepare, review, and
announce on June 15 an EPA plan proposal with only one month lead
time is very difficult. To assure adequate preparation and review of
EPA proposed plans, the following is recommended.
The regional offices should prepare a contingency EPA proposal
for transportation controls in each Region requiring these controls
to meet NAAQS by 1975. OAQPS 1.2-002, "Guidance for Writing Transpor-
tation Plans," is provided to assist the Regions in writing the plans.
This information should serve only as a guide. EPA policy on use
of gasoline rationing and the extent to which states will be required
to enforce EPA promulgated regulations are not yet finalized. There-
fore, to the extent sample regulations imply a particular enforcement
policy or a preferred strategy, they should be considered preliminary
until further policy guidance is recommended.
Included is a list of items that should be included in the pream-
ble. It is important that all these points be covered for the prepara-
tion of a comprehensive preamble. Preambles for Regions' proposals
will be coordinated by the Land Use Planning Branch for the single
preamble to cover all EPA plans proposed on June 15. The Land Use
Planning Branch is developing an additional listing of strategies and
priorities which can be used in EPA plans, and will attempt to
identify preferred strategies that would be most appropriate for EPA
proposal and promulgation in each Region.
Close attention should be given to the memorandum "Enforceability
of Transportation Control Strategies," 3-2-73, Shutler to Regional Air
and Water Programs Division Directors. Mr. Graham prepared an excellent
analysis of the potential for state and/or Federal enforcement. It is
intended that the sample plan be modified to suit each particular
Region using Mr. Graham's work and the preferred strategies from the
EPA Form 1320.6 (Rev. 6-72)
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Land Use Planning Branch. This information will be available
March 20. At that time the Region should review the proposal,
determine if it suits regional needs and prepare an outline of the
"back-up" EPA plan for each AQCR. This will be held in reserve to
finalize as an EPA'proposal if states do not submit an adequate plan.
Mr. Frick, of OGC, is preparing a document on the basis for ex-
tensions to meet the NAAQS. It is expected it will be available by
March 20.
The following policy issue papers are now in preparation by the
Land Use Planning Branch for consideration by the Administrator.
These issues will become an integral part of EPA policy to achieve
transportation controls.
1. Should an EPA promulgated plan make maximum use of
gasoline rationing? How much rationing can be
effected without severe community impact?
2. Should EPA write regulations to force the states to
act or should EPA act directly?
It is anticipated that we will be able to discuss these issues
in some depth at the March 20 meeting. A decision will be reached
as soon as possible.
An evaluation report must be prepared for transportation and or
land use plans that are received from the States. The Land Use
Planning Branch has prepared a checklist (OAQPS 1.2-003) which can be
used in the evaluation of the plans and serve as the basis of writing
the evaluation report. A copy of this report should be sent to the
Land Use Planning Branch no later than May 15, 1973.
For your review of the S.tate plans, your attention is called to
the following references:
1. "Requirements for Preparation, Adoption and Submittal of
Implementation Plans." (36 FR 15486) August 14, 1971.
2. "Criteria for Review of Transportation Control Measures."
OD/OAQPS January 30, 1973.
3. "Proposed Transportation Control Measures." (38 FR 1464)
January 12, 1973.
If you have further questions on transportation controls, please
contact the Land Use Planning Branch (919) 688-8291 or 8270.
Attachments
OAQPS 1.2-002
OAQPS 1.2-003
cc: Transportation representatives
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March 12, 1973
OAQPS NO. 1.2-002
Guidance for Writing of
Transportation Control Plans
This appendix includes the following sections:
I. Items to be Included in the Preamble
II. Suggested Wording for Opening of Preamble
III. Sample Wording for Possible Regulations
IV. Current Studies and Guidelines Applicable to Plan Preparation
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I. Items to be included in Preamble
The preamble to the control regulations should contain the following
items:
1. Percent pollutant reduction required: a statement as to the
percent reduction required of oxidants or carbon monoxide
to meet the national primary ambient air quality standard
by May 31, 1975.
2. Background: a brief description of the history and legislation
leading to the requirement for EPA to promulgate a control plan,
(See Section II). Also a description of the topography and
meteorology of the region in question and a statement describing
the reason (health basis) for the NAAWS. Describe the base air
quality data and compare it with the national standards.
3. Transportation and/or land use control alternates: describe the
control strategies available for the region in question such
as (a) stationary source controls (restrictions on organic solvent
use, gasoline vapor recovery systems for service stations, a
change in the substance used for degreesing operations, and a
vapor recovery system that prevents evaporation of solvents from
dry cleaning operations;) (b) hardware type mobile source controls
(inspection and maintenance, retrofit and fuel conversion,
evaporative controls to prevent evaporation of gasoline during
the filling of the gas tank; (c) reduction of vehicle miles
traveled (increased use of mass transit, increased car pooling,
gasoline rationing, increasing cost of motor vehicle use, limiting
the number of automobiles registered, land use controls or a
combination of these.) /
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4. The specific transportation and/or land use control strategy
proposed to meet NAAQS by May 31, 1975.
5. Include a table summarizing the effect of each element of the
proposed strategy as is shown on page 2196 of the January 22,
1973 proposed plan for Los Angeles, 38 FR (2194).
For the following items see the January 22, 1973 Federal Register:
6. Discuss legal and administrative procedures to implement the
plan.
7. Include compliance schedules.
8. Discuss surveillance and monitoring procedures.
9. Economic and social impact of the (name of Region) transportation
and/or land use plan.
10. Direct costs to the public.
11. Effect on the economic fabric of the community.
12. Tax revenue implications.
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13. Summary of impacts.
14. EPA efforts to mitigate the effects of proposed regulations
15. The need for mass transit (if applicable).
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II. Suggested Wording for Opening of Preamble
ENVIRONMENTAL PROTECTION AGENCY
[40 CFR Part 52]
Approval and Promulgation of Implementation Plans
Notice of Proposed Rule Making
On May 31, 1972 (37 FR 10842), pursuant to section 110 of the Clean
Air Act and 40 CFR Part 51, the Administrator approved, with specific
exceptions, State plans for implementation of the national ambient air
quality standards. On this date, the Governor of
was advised that in order to complete the requirements of § 51.11 (b)
and 51.14, a transportation and/or land use control strategy was to be
submitted to the Administrator by February 15, 1973.
On January 31, 1973, the United States Court of Appeals for the
District of Columbia Circuit found that the Administrator did not conform
to the strict requirements of the Clean Air Act of 1970 in permitting
several states to delay submission of transportation control portions
of their implementation plans until February 15, 1973, and in granting
extensions until mid-1977 for attainment of the national primary ambient
air standard without following the procedures established in Section
110 (3) 42 V.S.C. S 1857 c-5 (e). Accordingly the court ordered that the
Administrator rescind the extension granted the states for implementation
of the transportation and/or land use control portion of their imple-
mentation plans. The affected states were required to submit a control plan
by April 15, 1973. The plan was to show attainment of the national ambient
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air quality standards for oxidant and/or carbon monoxide as expedltlously
as possible but no later than May 31, 1975.
On this day the Administrator approved, with specific exceptions,
transportation and/or land use control plans submitted in response to
the January 31, 1973 court order. This proposal results from the failure
of the State of to submit an acceptable control
plan for the attainment and maintenance of the national primary ambient
air quality standard for oxidants and/or carbon monoxide.
III. Sample Wording for Possible Regulations
The following sample regulations should be modified to fit the AQCR
in question. This also includes the paragraph numbering system. Example
regulations follow the format shown in (38 FR 2194) dated January 22, 1973.
a. The preferred approach to be used by EPA in promulgating regula-
tions such as those on gasoline rationing (Section II f) have not
been finalized. Therefore these regulations and the strategy
implied by their use may be revised as EPA policy on preferred
strategies and enforcement are further developed.
b. Subpart (name of state) .
Section is amended by adding paragraphs
through , as follows: S 52 control strategy and
regulations: Photochemical oxidants and/or carbon monoxide,
AQCR.
Regulation for control of evaporative emissions.
(1) For purposes of this paragraph:
(i) "Evaporative control device" means a device installed on a
motor vehicle to prevent the escape of gasoline vapor from
the gasoline tank and carburetor.
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(11) "Registered" as applied to a motor vehicle, means that such
motor vehicle, is duly licensed
for general operation on public roads or highways by the
appropriate agency of the Federal Government or by the State.
(2) This regulation Is applicable In those portions of
Counties contained within the Metropolitan
Air Quality Control Region (AQCR) in the State of
The requirement of this regulation shall be effective
commencing up to .
(3) Prior to (date) , an evaporative control device of at
least 85 percent efficiency which is approved by the
Administrator shall be properly installed, in good working
order, and in operation on all registered light-duty
gasoline-powered vehicles of model years 1966 through 1969
and all registered heavy-duty gasoline vehicles of model
years 1966 through 1972. Approved evaporative control
devices shall be installed on a schedule determined by the
Administrator.
(4) After (date) , the following shall apply in the areas
specified in paragraph (b) (2), of this section:
(i) The State of shall not register light-duty
vehicles which do not comply with the provisions of
paragraph (b) (3) of this section.
(11) No owner of light-duty vehicles shall operate or allow
the operation of such vehicles which do not comply with
the provisions of paragraph (b) (3) of this section.
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c. Regulation for gaseous fuel conversion.
(1) For purposes of this paragraph:
(i) "Fleet vehicle" means any one of ten (10) or more light-and
heavy-duty vehicles operated by the same person (s) or
business and used principally in connection with the same
occupation or related occupations.
(11) "Gaseous fuel" means liquified or pressurized petroleum
or natural gaseo which are used as fuel for light-duty
vehicles.
(2) This regulation is applicable in those portions of
Counties contained within the Metropolitan Air
Quality Control Region (AQCR) in the State of .
The requirements of this regulation shall be effective
commencing on (date) .
(3) All registered gasoline-powered fleet vehicles of model years
prior to 1975 shall be equipped for and operated on gaseous
fuel by the effective date of this regulation. Conversion of
such fleet vehicles for use of gaseous fuel shall be on a
schedule determined by the Administrator.
(4) After (date) , the following shall apply in the areas
specified in paragraph (c) (2) of this section:
(i) The State of shall not register vehicles
which do not comply with the provisions of paragraph
(b) (3) of this section.
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(11) No owner of fleet vehicles shall operate or allow the
operation of such vehicles which do not comply with the
provisions of paragraph (c) (3) of this section.
d. Regulation for yearly inspection and maintenance.
(1) For purposes of this paragraph:
"Inspection and maintenance" means a program to reduce
emissions from In-use vehicles through Identifying vehicles
that need emissions control related maintenance and requiring
that maintenance be performed.
(2) This regulation is applicable in those sections of
Counties contained within the Air Quality
Control Region (AQCR) in the State of . The
requirements of this regulation shall be effective commencing
on (date) .
(3) All registered gasoline-powered light- and heavy duty vehicles
shall be Inspected annually for emissions and, as necessary,
maintained by the owner in order to pass the Inspection. This
shall be done by personnel, facilities and procedures which shall
be proposed and promulgated by the Administrator.
(A) After (date) , the following shall apply in the areas
specified in paragraph (d) (2) of this section:
(1) The State of shall not register light-duty
vehicles which do not comply with the provisions of
paragraph (d) (3) of this section and procedures promul-
gated pursuant thereto.
(ii) No owner of light-duty vehicles shall operate or allow
the operation of such vehicles which do not comply with
the provisions of paragraph (d) (3) of this section.
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Regulation for oxidizing catalyst.
(1) For purposes of this paragraph:
"Oxidizing catalyst" means a device installed in the exhaust
system of the vehicle that utilizes a catalyst and, if
necessary, an air pump to reduce emissions of hydrocarbons and
carbon monoxide from that vehicle.
(2) This regulation is applicable in those sections of
Counties contained within the AQCR in the state
of . The requirements of this regulation shall
be effective commencing on (date) .
(3) All registered gasoline-powered light- and heavy duty motor
vahicles of model years 1966 through 1974, shall be equipped
with an appropriate oxidizing catalyst exhaust retrofit in
accordance with paragraph (e) (2) of this section, approved
by the Administrator.
(A) Aftez , , the following shall apply. in the areas
specified in paragraph (e) (2) of this section:
(i) The State of ._ shall not register light-
duty vehicles which do not comply with the provisions
of paragraph (e) (3) of this section.
(ii) No owner of light-duty vehicles shall operate or allow
the operation of such vehicles which do not comply with
the provisions of paragraph (e) (3) of this section.
f. Regulation for purchase of gasoline.
(1) For purposes of this paragraph:
(i) "Control period" means a portion of a calendar year in which
gasoline sales are regulated.
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(11) "Retail outlet" means any service station, filling station,
garage, store or other place of business at which gasoline
Is transferred directly to consumers in the regular course
of business.
(2) This regulation is applicable in those portions of
Counties contained within the Air Quality Control
Region (AQCR) in the State of • The
requirements of this regulation shall be in effect commencing
(date) and shall remain in effect through (date)
The regulation shall be effective in the same control periods
during each calendar year thereafter, until such time as the
Administrator determines the regulation to be no longer
necessary for the attainment and maintenance of the national
standard for photochemical oxidants (hydrocarbons and/or
carbon monoxide.)
(3) During the control periods, as specified in paragraph (f)
(2) of this section, the sale of gasoline to retail outlets
and to the owners and operators of motor vehicles shall be
controlled by directions of the Administrator, EPA.
(4) The amount of gasoline to be controlled shall be determined
by the Administrator no later than 30 days prior to the
effective date of a control period. This determination shall
be based on the hydrocarbon emission reduction required for
the attainment and maintenance of the national standard for
photochemical oxidants and/or carbon monoxide in the AQCR.
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g. Volatile organic compound loading facilities.
(1) This regulation is applicable in those portions of
Counties contained within the
Air Quality Control Region (AQCR) in the State of
. The requirement of paragraph (g) (2) of
this section shall be effective commencing
(2) No person shall load or allow the loading of volatile organic
compounds having a vapor pressure of 1.5 pounds per square
inch absolute or greater, under actual storage conditions,
into any tank truck or trailer, railroad tank car, loco:mctive,
aircraft, stationary storage tank with a capacity greater
than 5 gallons from any loading facility unless such tank or
loading facility is equipped with a vapor collection and
disposal system, or its equivalent, properly installed, in
good working order, and in operation. Loading shall be
accomplished In such a manner that all displaced vapor and air
will be vented only to the vapor disposal system. A means
shall be provided to prevent liquid organic compound drainage
from the loading device when it is removed from the hatch, or
to accomplish complete drainage before such removal. The
vapor disposal portion of the system shall consist of one
of the following:
(i) An absorber system or condensation system with a minimum
recovery efficiency of 90 percent by weight of all the
volatile organic compound vapors and gases entering such
disposal system.
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(11) A vapor handling system which directs all vapors to a
fuel gas system.
(ill) Other equipment of at least 90 percent efficiency,
provided plans for such equipment are submitted to and
approved by the Air Pollution Control Officer.
Intermediate storage vessels may be used prior to disposal
of vapors under paragraph (g) (2) (l),(li), or (ill),
provided they are so designed as to prevent release of
vapors at any time during use.
(3) Notwithstanding paragraph (g) (2) of this section, no person
loading or allowing the loading of the above Specified
compounds in the above.specifled storage vessels from the
above specified loading facilities, any of which were in
existence on the effective date of this regulation, or in
the procere of being installed for use on said effective date,
shall be subject to the provisions of paragraph (g) (2)
of this section until (date) . Provided however,
that such person is hereby required to file on or before
(date) a compliance schedule with the Administrator
showing how the person will bring this operation into
•
compliance with paragraph (g) (2) of this section on or
before (date) . Failure to file such compliance
schedule or abide by its iterms shall render the
prohibition contained In paragraph (g) (2) of this section
immediately applicable to such person on (date) ,
or on the date of said person's failure to abide by said
compliance schedule, whichever Is later.
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Control of drycleaning solvent evaporation.
(1) For the purposes of this paragraph:
"Dryeleanlng operation" means that process by which an
organic solvent is used in the commercial cleaning of
garments and other fabric'materials.
(2) This regulation is applicable in those portions of
Counties contained within the
Air Quality Control Region (AQCR) in the State of
: . The requirements of this regulation'shall
be effective commencing on (date) .
(3) No person shall operate a drycleaning operation unless the
uncontrolled organic emissions from such operation have
been reduced at least 85 percent.
(4) Drycleaning operations emitting less than three (3) pounds
per hour and less than 15 pounds per day are exempt from
this regulation;
(5) If incineration is used as a control technique, 90 percent
or more of the carbon in the organic compounds being
incinerated must be oxidized to carbon dioxide.
1. Degressing operations.
(1) For the purpose of this paragraph:
"Degreasing" means the operation of using an organic solvent
as a surface cleaning agent prior to fabricating, surface
coating, electroplating or any other process.
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(2) This regulation is applicable in those portions of
Counties contained within the . ' • - :. ^ir Quality
~ t*>,'- ""^"^""""i^T™^TiTTT^T1 • '•.'••' "•''*•• "'<
Control Region (AQCR) in the State of •• 'i _ :--
The requirements of this regulation shall be effective
\ ' ' ;
commencing on (date) . x
(3) No person shall use trichloroethylene (TCE) degreaser as a
degreasing solvent.
j. Organic Solvent Usage.
Contact the Land Use Planning Branch for additional information
on this subject. Work is currently being done to revise
Appendix "B" of the August 14, 1971, Federal Register. 36 F.R.
(15486.)
IV. Current Studies and Guidelines Applicable to Plan Preparations
The EPA has published the following studies and guidelines:
a. "Prediction of the Effects of Transportation Controls on Air
Quality in Major Metropolitan Areas" and "Evaluating Controls
to Reduce Motor Vehicle Emissions in Major Metropolitan Areas,"
November 1972. Both of these documents are generally known as
the "Six Cities Study."
b. "Transportation Controls to Reduce Motor Vehicle Emissions in
Major Metropolitan Areas," December, 1972. This document is a
summary of 14 cities that were studied with the view of
recommending specific transportation control strategies.
Separate reports for each of the 14 cities will also be
available alo^g with the Six Cities Study and the document
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listed in b above from the Office of Technical Information and
Publications, Research Triangle Park, North Carolina 27711.
c. "Control Strategies for In-Use Vehicles," November, 1972. This
report is available from EPA, Mobile Source Pollution Control
Programs, 401 M St.S.W., Washington, D.C. 20460.
d. "Proposed Transportation Control Plans," Federal Register
(38 FR 1464) January 12, 1973.
e. "An Air Pollution Impact Methodology for Airports and
Attendant Land Use," dated January, 1973. Copies available
from Land Use Planning Branch, EPA, Research Triangle Park,
North Carolina 27711.
f. "Criteria for a Review of Transportation Control Measures"
OD/OAQPS Memo, January 30, 1973.
g. "An Interim Report on Motor Vehicle Emission Estimation" Kircher
and Armstrong, October, 1972 and available from the Land Use
Planning Branch, EPA, Research Triangle Park, North Carolina 27711.
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