REPORT FOR CONSULTATION ON THE
METROPOLITAN KANSAS CITY INTERSTATE
AIR QUALITY CONTROL REGION
U.S. DEPARTMENT OF HEALTH, EDUCATION, AND WELFARE
Public Health Service
Consumer Protection and Environmental Health Service
National Air Pollution Control Administration
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REPORT FOR CONSULTATION ON THE
METROPOLITAN KANSAS CITY INTERSTATE
AIR QUALITY CONTROL REGION
U.S. DEPARTMENT OF HEALTH, EDUCATION, AND WELFARE
Public Health Service
Consumer Protection and Environmental Health Service
National Air Pollution Control Administration
March, 1969
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CONTENTS
PREFACE. 3
INTRODUCTION 5
EVALUATION OF ENGINEERING FACTORS 13
EVALUATION OF URBAN FACTORS 31
THE PROPOSED REGION 44
DISCUSSION OF PROPOSAL 44
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PREFACE
The Secretary, Department of Health, Education, and Welfare, is
directed by the Air Quality Act of 1967 to designate "air quality control
regions" to provide a basis for the establishment of air quality standards
and the implementation of air quality control programs. In addition to
listing the major factors to be considered in the development of region
boundaries, the Act stipulates that the designation of a region shall be
preceded by consultation with appropriate State and local authorities.
Tne National Air Pollution Control Administration, DREW, has con-
ducted a study of the greater Kansas City area, the results of which are
presented in this report. The Region* boundaries proposed in this report
reflect consideration of available and pertinent data; however, the
boundaries remain subject to revision suggested by consultation with State
and local authorities. Formal designation will be withheld pending the
outcome of the meeting. This report is intended to serve as the starting
point for the consultation.
The Administration is appreciative of assistance received either
directly during the course of this'study or indirectly during previous
studies from the official air pollution agencies of the affected states
and counties, the Metropolitan Planning Commission (Kansas City Region),
the Chamber of Commerce of Greater Kansas City, the Missouri State
*For the purposes of this report, the word region, when capitalized, will
refer to the Metropolitan Kansas City Interstate Air Quality Control
Region. When not capitalized, unless otherwise noted, it will refer to
air quality control regions in general.
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Highway Commission, the State of Kansas Department of Economic
Development, the Topeka-Shawnee County Metropolitan Planning Agencies,
and the State of Missouri Department of Community Affairs.
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INTRODUCTION
"For the purpose of establishing ambient air
quality standards pursuant to section 108, and for
administrative and other purposes, the Secretary,
after consultation with appropriate State and local
authorities, shall, to the extent feasible, within
18 months after the date of enactment of the Air
Quality Act of 1967 designate air quality control
regions based on jurisdictional boundaries, urban-
industrial concentrations, and other factors including
implementation of air quality standards. The
Secretary may from time to time thereafter, as he
determines necessary to protect the public health
and welfare and after consultation with appropriate
State and local authorities, revise the designation
of such regions and designate additional air quality
control regions. The Secretary shall immediately
notify the Governor or Governors of the affected
State or States of such designation."
Section 107(a), Air Quality Act of 1967
Air pollution, because of its direct relationship to people and
their activities, is an urban problem. Urban sprawls often cover
thousands of square miles; they quite often include parts of more than
one state and almost always are made up of several counties and an even
greater number of cities. Air .pollution, therefore, also becomes a
regional problem, and the collaboration of several governmental juris-
dictions is prerequisite to the solution of the problem in any given
area. Air quality control regions called for in the above-quoted section
of the Air Quality Act of 1967 are meant to define the geographical
extent of air pollution problems in different urban areas and the com-
bination of jurisdictions that must contribute to the solution in each.
The regional approach set up by the Air Quality Act is illustrated
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in Figure 1. The approach involves a series of steps to be taken by
Federal, State, and local governments, beginning with the designation
of regions, the publication of air quality criteria, and the publication
of information on available control techniques by the Federal Government.
Following the completion of these three steps, the Governors of the States
affected by a region must file with the Secretary within 90 days a letter
of intent, indicating that the States will adopt within 180 days plans
for the implementation, maintenance, and enforcement of those standards
in the designated air quality control regions.
The new Federal legislation provides for a regional attack on air
pollution and, at the same time, allows latitude in the form which region-
al efforts may take. While the Secretary reserves approval authority, the
States involved in a designated region assume the responsibility for
developing standards and an implementation plan which includes administra-
tive procedures for abatement and control.
The basic objectives in the designation of an air quality control
region is that it be self-contained, i.e. that the transfer of air pollution
out of or into a region is minimized. This objective recognizes the fact
that an air quality control region cannot be delineated in a way to make
it completely independent with respect to the air pollution problem. Be-
cause air pollutants can be carried long distances, the air over a region
can be subjected occasionally or even frequently to trace amounts of
pollution from other cities and individual sources located outside its
boundaries. Under specific and episodic conditions such contributions can
even reach significant quantities. The problem of a boundary designation
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HEW DESIGNATES
AIR QUALITY
CONTROL REGIONS.
HEW DEVELOPS AND
PUBLISHES AIR
QUALITY CRITERIA
BASED ON SCIENTIFIC
EVIDENCE OF AIR
POLLUTION EFFECTS.
HEW PREPARES
AND PUBLISHES
REPORTS ON
AVAILABLE CONTROL
TECHNIQUES
STATES INDICATE
THEIR INTENT
TO SET STANDARDS.
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.
I
STATES SUBMIT
IMPLEMENTATION PLANS
FOR HEW REVIEW.
STATES ACT TO CONTROL
AIR POLLUTION IN ACCORDANCE
WITH AIR QUALITY STANDARDS
AND PLANS FOR IMPLEMENTATION.
FIGURE 1. FLOW DIAGRAM FOR ACTION TO CONTROL AIR POLLUTION ON A REGIONAL
BASIS, UNDER THE AIR QUALITY ACT.
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is further compounded in that urban areas generally do not end abruptly
but are surrounded by activities that can contribute to the pollution
of the urban area as well as be the recipients of its generated pollution.
Consideration of all these possibilities would result in regions sub-
stantially larger than is practical or even necessary to get to the brunt
of the problem. The primary question, therefore, becomes one of relative
magnitude and frequency.
The boundaries of regions, however, should encompass areas that
contain sources that add significantly to the pollution load of the air
as well as the areas that are significantly and continuously affected by
it. For this purpose, the delineation of regional boundaries is based on
evaluation of annual and seasonal air pollutant emissions and resultant
ambient concentrations rather than those based on short-term and specific
conditions.
The selection of regional boundaries should not be based solely on
today's conditions and needs, but, perhaps more importantly, should give
consideration to future development and growth of the area. For this
purpose, extensive consideration should be given to prescribed metropol-
itan plans as well as the forecasted growth. Such considerations should
result in the designation of regions that will contain the sources and
receptors of regional air pollution for a number of years to come. This
is not to say that the regional boundaries should remain stationary and
unchanged. Periodic review of boundaries is desirable, and changes in
the boundary should be considered if conditions warrant.
The delineation of region boundaries solely on the basis of source
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locations and distributional patterns of ambient air pollution would
most likely result in regions that do not follow any existing govern-
mental boundaries, are difficult to define, and, more importantly,
extremely difficult if not impossible to administrate. It is for this
purpose that existing jurisdictional entities are reviewed and wherein
practical the boundary lines of a region should include that combination
of whole jurisdictions that encompasses the problem area. There can be
exceptions to that philosophy, however. The presence of overly large
jurisdictions, marked topographical features (mountains), or notable
differences in development within a given jurisdiction may, in some
cases, make it desirable to include only portions of some jurisdictions.
A region, then, will represent a balance between the various ob-
jectives discussed so far to the extent that any two of them lead to
different conclusions. The strength of some factors over others may
lead to region boundaries which exclude some sources of pollution that
might affect the air quality or part or all of the nearby region under
certain conditions. Even though the impact of such sources would probably
be minimal, the implementation plan required under the Air Quality Act
for the region should provide a mechanism for the control of point
sources that are located just beyond the region boundary. Such a pro-
vision would be consistent with the basic objective of providing
desirable air quality within an area being designated as an air quality
control region.
Figure 2 summarizes the procedure used by the National Air Pollution
Control Administration for designating air quality control regions.
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ENGINEERING EVALUATION
• EMISSIONS INVENTORY
• METEOROLOGY
• AIR QUALITY ANALYSIS
EXISTING AIR QUALITY DATA
DIFFUSION MODEL OUTPUT
URBAN FACTORS
• Jurisdictional Boundaries
• Urban-Industrial Concentrations
• Cooperative Regional Arrangements
• Pattern and Rate of Growth
• Existing State and Local Air
Pollution Control Legislation & Programs
Preliminary
Delineation
of
Regions
Consultation
with State
and Local
Officials
Formal
Designation
by
Secretary-HEW
Figure 2. Flow diagram for the designation of air quality control regions.
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11
A preliminary delineation of the region is developed by bringing
together two essentially separate studies—the "Evaluation of Engineering
Factors" and the "Evaluation of Urban Factors."
The study of "Engineering Factors" indicates the location of pollution
sources and the geographic extent of serious pollutant concentrations in
the ambient air. Pollution sources are located by an inventory of emissions
from automobiles, industrial activities, space heating, waste disposal, and
other pollution generators. Pollution concentrations in the ambient air are
estimated from air quality sampling data and from a theoretical diffusion
model. When it exists, air quality sampling data is more reliable than
the theoretical diffusion model results since the data is directly recorded
by pollution measuring instruments. Unfortunately, in many cases extensive
air quality sampling data is unavailable in the rural areas surrounding an
urban complex.
The study of "Urban Factors" encompasses all non-engineering consider-
ations. It reviews existing governmental jurisdictions, current air pollu-
tion control programs, present concentrations of population and industry,
and expected patterns of urban growth. Other non-engineering factors are
I
discussed when they are relevant.'As a whole, the study of urban factors
indicates how large an air quality control region must be in order to en-
compass expected growth of pollution sources in the future. It also considers
which group of governmental jurisdictions will most effectively administer
a strong regional air quality control program.
The conclusions of the engineering study are combined with the results
of the urban factors study to form the basis of an initial proposal for an
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12
air quality control region. As shown in Figure 2, the proposal is then
submitted for consultation with State and local officials. After review-
ing the suggestions raised during the consultation, the Secretary formally
designates the region with a notice in the Federal Register and notifies
the Governors of the States affected hy the designation.
The body of this report contains a proposal for the boundaries of the
Metropolitan Kansas City Interstate Air Quality Control Region and support-
ing studies on engineering and urban factors. The report itself is intended
to serve as the background document for the formal consultation with
appropriate State and local authorities.
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13
EVALUATION OF ENGINEERING FACTORS
The engineering evaluation for the Kansas City area was based on a
study of topography, air pollutant emissions, meteorology, estimated
air quality levels and available ambient air quality data. The emission
inventory indicated the location of point and area sources, the quantity
of pollutants emitted from these sources, and the resulting emission
densities. These data were subsequently used in a diffusion model
to estimate air quality levels in the Kansas City area.
TOPOGRAPHY
if
The seven-county metropolitan area of Kansas City covers 3227
square miles in Missouri and Kansas. Relatively 'flat terrain with
a mean elevation of 900 feet surrounds the area. The Ozark Mountains,
located about 75 miles southeast of the city, present the only major
change in topography near Kansas City. There is little variation in
average elevation to the north or southwest. A gradual slope of
1.5 feet per mile extends to the east and the Mississippi River, and
a slow rise extends to the foothills of the Rocky Mountains to the west.
The metropolitan area is dissected into four sections by three
i
river valleys. The Missouri River flows from west to east through
the area,forming part of the Kansas-Missouri border; the valley formed
by the Missouri River is two to three miles wide. The Kansas River
flows into the Missouri near the center of the area and the Blue River
enters the Missouri about seven miles east. These two rivers have
* In this report;, the "seven-county metropolitan area" refers to the
counties of Johnson, Leavenworth, and Wyandotte in Kansas, and Cass,
Clay, Jackson, and Platte in Missouri. These counties were part of
the Air Pollution Abatement Activity and are presently represented
in the Kansas City Metropolitan Planning Commission and the Mid-
America Council of Governments.
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14
formed valleys of approximately 1.5 and 0.5 miles wide, respectively.
The river bottom lands lie at about 730 feet elevation.
EMISSION INVENTORY
The National Air Pollution Control Administration conducted an
2
inventory of air pollutant emissions for the Kansas City area. Three
major pollutants--sulfur oxides, carbon monoxide, and suspended par-
ticulates--have been considered in previous studies by-NAPCA to aid
in designating air qualtiy control regions. These three pollutants
provide some measure of the general geographic extent of the overall
problem. Sulfur oxides pollution levels illustrate the impact of
fuel burning activities at stationary sources. Levels of carbon
monoxide provide the best indication of the impact of gasoline-powered
motor vehicles on the regional air pollution pattern. Particulate
emissions indicate primarily the extent of industrial, power,
incineration, and heating sources. Results of the emission inventory
are tabulated in Table 1.
The emission inventory figures of Table 1 are the same as those
presented in Phase II of the Abatement Activity, Kansas City, Kansas--
*
Kansas City, Missouri. Included in the inventory were estimates
from the counties of Leavenworth, Wyandotte, and Johnson in Kansas,
and Platte, Clay, Jackson, and Cass in Missouri. The estimated annual
emissions of each of the three pollutants by grid zone were converted
to average 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 emissions inventory was conducted during the calendar year 1966, and
a more recent inventory has not been conducted for the area. Thus,
emission figures in some categories of Table 1 may be overestimated
since some reduction in emissions may have taken place in the interim.
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TABLE 1, POLLUTANT EMISSIONS BY SOURCE CATEGORY
AND POLITICAL JURISDICTION IN THE KANSAS CITY AREA
(TONS/YEAR)
County
10
o
•o
•H
M
0
M
3
M-j
3
W
B
41
4J
It
r-i
3
0
u
kl
5)
Hi
91
•o
•H
8
s
£
§
JD
M
fl
Gas 8
Clay
Jackson
Platte
Johnson
Leavenworth
fyandotte
Total
Cass
Clay
Jackson
Platte
Johnson
Leavenworth
Wyandotte
Total
Cass
Clay
Jackson
Platte
Johnson
Leavenworth
Wyandotte
Total
Ind.
23
1,200
4,511
7
160
62
3,021
9,784
43
1,095
2,510
10
146
39
1,217
r 5,060
62
63
343
52
123
88
123
854
Conm. &
Inst.
171
489
5,882
95
3,141
154
451
10,383
34
100
909
19
2,364
43
94
3,563
47
153
1,494
29
163
34
171
2,091
Residential
167
193
932
148
299
- 229
306
2,274
41
85
491
36
139
56
149
997
2
25
123
Neg.
3
3
63
219
Power
Plants
233
9,081
39,104
_
16,102
64,520
58
650
2,079
_
_
—
2,700
5,487
1
15
160
.
_
_
64
219
Total Fuel
594
10,963
50,429
250
3,600
445
20,680
86,961
176
1,930
5,989
65
2,649
138
4,160
15,107
112
256
2,120
81
289
125
421
3,404
Ind. Proc.
—
_
16,100
«.
2,300
15,100
33,500
18
1,890
5,480
_
230
490
10,500
18,608
_
-
.
_
.
.
Transportation
118
425
1,649
106
381
192
1,353
4,224
204
1,054
3,007
447
660
361
2,568
8,301
23,057
46,025
285,965
17,204
75,883
32,453
228,036
708,623
Refuse
Disposal
8
21
200
8
170
19
50
476
310
783
6,726
230
6,750
795
2,055 (
17,649
520 •
1,284
12,880 !
370 j
11,821 I]
1,411
3,980
32,266
Total
720
11,409
68,378
364
6,451
656
37,183
125,161
708
5,657
21,202
742
10,289
1,784
19,283
59,665
23,689
47,565
300,965
17,655
87,993
33,989
232,437
744,293
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16
the land area of each zone. The resulting emission densities are shown
in Figures 3, 4, and 5. The general pattern of emission densities for
each of the three pollutants is closely related to the pattern of
urbanization in the Kansas City area.
Major point sources in the study area which are contributing to the
air pollution problem are shown in Figure 6.
Table 2 shows estimated annual emissions of particulates, S0y, and
NOjj from point sources in Douglas County. The inventory was conducted
by the Kansas State Department of Health.
Table 2. Estimated Contaminant Emissions for
Douglas County (tons/year)
Source |Particulate
Agricultural Ind.
(3 Alfalfa de-
hydrators and
3 elevators)
Building Materials
(2 Ready mix con-
crete and 1
asphalt)
Institutional Power
Plant
Refuse Disposal
(Open Burning)
Municipal
Auto Salvage
Municipal Power Plant
Space and Process Heat
(3 Major Industries)
Total (point sources)
345
79
29
»
240
7
13
4
717
sox
1
6
3
14
24
NOX
741
176
34
951
AIR QUALITY ANALYSIS
The geographical distribution of pollutant sources illustrates
the core of the problem area. It does not, however, elucidate the
extent of the influence of pollution sources on the people and property
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17
PARTICULATE DENSITY,
p
tons/nil -day
II <0-3
I 0.3-<1.0
| 1.0-<2.0
Ii2.0
Figure 3 . Partlculate emission densities for average space-heating day.
(Counties were divided into emission inventory zones
shown above.)
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18
SOX DENSITY,
2
tons/mi -day
0.3-<1.0
1.0-<2.0
CASS
Figure 4 . Sulfur oxides emission densities for average space-heating day/
(Counties were divided into emission inventory zones
shown above.)
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19
CARBON MONOXIDE DENSITY,
Figure 5. Carbon monoxide emission densities for average day.
(Counties were divided into emission inventory
zones shown above.)
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20
\ MISSOURI
V
KANSAS >5^x
\
INDUSTRIAL SOURCE
STEAM-ELECTRIC POWER PLANT
OPEN BURNING DUMP
MISCELLANEOUS GOVERNMENTAL
SOURCE
Figure 6. Point sources that emit 100 tons or more per year of a single
pollutant. (The emission inventory zones shown above
were used to calculate emission densities--Figures
3, 4, and 5.)
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21
located outside the highly urbanized portion of the Kansas City
area. A study of air qualtiy levels known or estimated to occur is
useful in determining the area affected by the pollution sources and
thus subject to inclusion in the Air Quality Control Region. Such
analysis can be based directly on air sampling data in those
instances where the sampling program covers a large enough area and
has been in existance long enouth to provide reliable patterns of
air quality throughout the region under study. Since such compre-
hensive air quality data rarely exists, it becomes necessary to
develop estimates of prevailing air quality. Diffusion modeling is
a technique by which such estimates can be made based on the location
and quantity of pollutant emissions and on meteorological conditions.
Topography is reflected in the results of the model, but only to
the extent that it influences meteorological conditions.
The diffusion model was applied for each of the three pollutants
for an average summer day, winter day, and annual day. Figure 7 and
Table 3 show the meteorological data required to apply the model for
each of the three average days. Figure 7 shows the percent frequency
of occurrence .of wind direction from 1951 through I960 in Kansas City
for summer, winter, and annual conditions. The wind speed and direction
i
data used in the diffusion model were considered representative of the
prevailing wind patterns throughout the general Kansas City area.
Since the Martin-Tikvart model used in this study attempts to show
long-term rather-than episodic air qualtiy conditions, only average
emissions and long-term meteorology are considered. If episodic data
(i.e., data related to more stagnate but less frequent occurence) were
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22
£.0
13.4-
Figure 7. Percent frequency
of wind direction
for various averaging
times, based on
1951-1960 data.
is. 8
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23
used to aid in delineating a region boundary, the region would be
unnecessarily large. Even the "smaller" region defined on the basis
of mean concentrations will undoubtedly encompass the area of
maximum concentration upon which a reduction plan' is to be developed.
The mixing depths for the time periods are averages of the
morning and afternoon values as shown in Table 3; these data were
Table 3. Average Mixing Depths for
Kansas City Area by Season
Season
Winter
(Dec. ,Jan. ,Feb.)
Summer
(June, July, Aug.)
Annual
(Four Seasons)
Mixing Depths, meters
Average
Morning
350
350
371
Average
Afternoon
760
1550
1253
Average, Morning
and Afternoon
555
950
812
obtained from tabulations prepared by the National Weather Records
Center (ESSA). Combined with wind data, these data are used in the
diffusion model to assess the spatial distribution of concentrations
of suspended particulates, sulfur oxides, and carbon monoxide.
Suspended Particulates
o
Figure 8 shows the measured suspended particulate distribution
based on data from 16 stations taken from October 1966 to October 1967.
This figure was published in the abatement activity report, Phase II.
3
Concentrations of 100 /|g/m and greater occured in the core of the
study area, i.e., in Kansas City, Kansas, and Kansas City, Missouri,
along the Kansas and Missouri Rivers.
Theoretical concentration contours produced by the diffusion model
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24
'r:v:-> $?$V&?2
figure 8 . Geographical distribution of
average suspended participate
concentrations - October,1966-
October 1967 (all data)/
l > 100 yg/m3
< 75 yg/m (Numbers on the map refer to sampling stations)
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25
are shown in Figure 9. Contour values were adjusted to approximate
those of the core area in Figure 8. The theoretical contours are less
well defined in the core of the area than contours drawn from sampling
data, but they encompass more area since values go down to 40 /6/g/m .
The background level is assumed to be approximately 40 /fg/m in the area
surrounding Kansas City. In previous reports proposing air quality
control regions, the area within the background level contour line
was considered for inclusion in the region. It must be reiterated
that the theoretical contours are based on emissions from the seven-
county area only. Had emissions from St. Joseph, Topeka, and
Lawrence been included in the model input, the contour shapes and
geographical extent would have changed slightly.
Sulfur Oxides
3
Figure 10' shows average measured sulfation levels for January
and February, 1967, in the core of the study area. The highest
fy
measured values Q_0.75 mg SO-/100 cm --day) appear in downtown Kansas
City, Missouri, near the confluence of the Missouri and Kansas Rivers.
Shown in Figure 11 are theoretical SOX contours in ppra based on
diffusion model output. The values were adjusted to conform with
**
the sulfation levels of Figure 10 , but the shape of the contours
were not changed. In general the isopleths are elongated in an east-
west direction along the Missouri River.
The 0.01 ppra SOX contour has been used in past region designations
* All diffusion model values were multiplied by a factor of 4.0 so that
the values of the 'innermost contours would correspond to those shown
for measured data in Figure 8.
** 0.75 mg SO-/100 cm^--day and 0.50 mg SO^/lOO cm --day are equivelent
to average SO- concentrations of approximately 0.03 and O.O2 ppm,
respectively, (see Reference 4.) Sulfur dioxide (S02) constitutes
the overwhelming majority of sulfur oxides pollution.
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••^w
' jHU^r J
Brown boniphan -Jf'j,/-*P
| ! Atchison
"
i '
1! Daviess
De Kalb '
~T
Buchanan
Platte
Caldwell
i
L
t
Jackson '
Ray
: i
1 "%. , Clay
Jefferson ] Leaven>
worth
J
I Clinton_
Livingston
• Carroll
H
40
i
| Shawnee J
l" ~ ~ " ~ ™ "" "*
Lafayette
J
I I
I Douglas I Johnson
i " '
L.
Osage_ ;
i
I Coffey
Franklin ! Miami
| 1
i Anderson j Linn
Cass
Bates
Johnson
—I
—i
r
a I
ar"
Henry j
• i
Scale=miles
«^s
0 5 10 20 30
Suspended Particulates--/^g/m"
40
State Boundary
County Boundary
" City Boundary
Figure 9. Theoretical Suspended
Particulate Concentration--
Annual Average
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27
2.0.75 mgm S03/100 cm2-day
2.0.5 mgm SOs/lOO cm2-day
£0.3 mgm S03/100 cm2-day
<0.2 mgm S03/100 cm2-day
(Numbers on the map refer to
sampling stations.)
Figure 10. Geographical distribution of
average sulfation levels -
January-February 1967.
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28
BBBBHHHIiiHBHBBHFg^^BBUjF^^^^^^ »
i ^k^Holt ! Andrew
^W Jft&
Jb
S t; I D
Brown JDoniphan M 11 °?° p
j j Atchison jP1^
J J Buchanan
! %^pl"te Li1
j Jefferson [ Leaven_"\
, worth it / **aqp«=«
\ / A
Jackson j \ L \^
~ ' '^^i1^
r^Y^j^
__Shawnee 'L J j;
|»n.i—
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\ \ Douglas j Johnson g
4 __ .. _L_
1
1 Osage ' if--
[ ' ~ ~ ~ ~| Franklin j Miami %
\ m
i Coffey ! Anderson i Linn §|
ll
iS3
Scale=miles
0 5 10 20 30 40
State Boundary Fl8Urcoi
. . _ . County Boundary
T^ _ J
i — \
i
Uaviess
• Caldwell L
Livingston
j j Carroll
i Ray '
inton |
Clay
~V
j i .^-^y^
^-0.02 r^
J^^^ri— 0.03
J^r »
ft' Lafayette 1
J *? «
Jackson ''
1
i Johnson
Cass i
Bates 1 i
| Henry j
1 1
i i
S0y--ppm
11. Adiusted theoretical SOX
acentration, winter average.
City Boundary
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29
as a guide to the area most affected by SOX emissions in an urban area.
Though geographically less extensive in Kansas City than in many urban
areas (e.g., St. Louis, Cleveland, Pittsburg, and Boston), the 0.01 ppm
SOX contour, includes parts of five counties—Wyandotte and Johnson in
Kansas, 'and Platte, Clay, and Jackson in Missouri.
Carbon Monoxide
Figure 12 shows theoretical relative carbon monoxide contours.
Isopleths based on emissions and meteorology from an average annual
day are presented here since emissions are considered to be nearly
3
constant throughout the year. Figure 12 indicates that the
i
highest relative carbon monoxide concentrations occur in the down-
town Kansas City, Kansas--Kansas City, Missouri, area where traffic
volume is greatest. As in the case of suspended particulates and
sulfur oxides, had emissions from cities in the surrounding counties
been included in the diffusion model input data, the shapes of the
contours would have been altered.
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30
Holt} Andrew
t ;
Uaviess
„.. ~^~
Brown Doniphan
1 ' v
; Atchison I
\ §. Buchanan
Livingston
Carroll
Jefferson
Jackson !
Lafayette
\ ^ JaSkson I
Osage ; :
Franklin Miami
Scale=miles
^^^^^^•^•^•••••c
0 5 10 20 30 40
Figure 12. Theoretical Relative Carbon Monoxide
State Boundary Contours--Annual Average
County Boundary
"" City Boundary
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31
EVALUATION OF URBAN FACTORS
INTRODUCTION
A number of urban factors are relevant to the problem of defining
air quality control region boundaries. First, the location of population
is an important consideration, since human activity is the ultimate
cause of air pollution, and humans are the ultimate victims. The popu-
lation 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. The location of industrial activity and the
industrial growth pattern are relevant considerations for similar reasons.
i
Political and jurisdictional considerations are important also, since
the 1967 Air Quality Act envisions regional air pollution programs
based on cooperative efforts among many political jurisdictions. The
following discussion of urban factors will present these considerations
as they apply to the Kansas City area.
POPULATION
Figure 13 and Table 3 display present population and population
densities by county in the Kansas City area. ' The seven-county
metropolitan area has a population of over 1,300,000 people. Of
these, about one half live in the cities of Kansas City, Kansas, and
Kansas City, Missouri. Three counties outside of the 7-county metro-
politan area have significant population densities: Shawnee County (Topeka),
Douglas County (Lawrence), and Buchanan County (St. Joseph). All three
have higher population densities than two counties in the metropolitan
area—Cass and Platte. Though Figure 13 shows equal ranges of population
density in the counties of Shawnee, Johnson, and Clay (250-1000 residents
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32
VHMVH
Holt ! Andrew
Sv /
I
Brown JDoniphan
] Atchison
I f/ //Buchanan
Livingston
Carroll
I Jefferson v^
Lafayette
Coffey I
i
Henry I
Scale=miles
BS
0 5 10 20 30
40
Figure 13. 1968 Population Density
Residents per square mile
State Boundary
County Boundary
m •*- City Boundary
>1000
250—1000
. 50——250
<50
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Table 3. Population and Employment Data for Kansas City Area
CO
O
CO
CO
M
X
Hyandotte
Andrew
Area '
mi.2
576
427
577
656
388
471
577
656
549
476
465
606
592
720
547
152
435
Bates 841
Buchanan
Caldwell
Carroll
Case
Clay
Clinton
Da v less
Dekalb
Henry
Holt
Jackson
Johnson
Lafayette
Livingston
Platte
Ray
404
430
694
698
413
420
563
423
737
464
603
826
634
533
420
574
Population
1968
7,800
19,800
13,300
7,900
9,300
53,100
20,300
11,300
11,700
210,000
53,100
7,700
19,800
12,800
152,000
185,000
10,600
14,900
86,000
8,100
12,800
39,500
110,000
11,500
8,400
6,700
18,700
6,700
660,000
33,900
i 25,100
15,200
31,000
16,100
Pop. Density
1968
res. /mi.2
14
46
23
12
24
113
35
17
21
440
114
13
33
18
278
1219
24
18
213
19
19
57
268
27
15
16
25
15
1098
41
40
29
Population
1980
8,500a
20,400a
13,300a
7,700a
9,400a
SS.OOOa
20,500a
lO.lOOa
ll,300a
371,500b
70,000b
8,100a
19,800a
12,800a
209 ,760c
254,000b
9,250d
13,300d
104,500d
6,700d
lO.OOOd
62,000b
223,000b
lO.SOOd
6,300d
5,300d
16,700d
5,000d
925,500b
70,000d
Pop. Density
1980 ,
res. /Mi.
15
48
23
12
24
117
36
15
21
779
151
Additional
residents
per mi.
1
2
neg
12
neg
4
1
-2
neg
% Growth
1968-
1980
9
3
0
-3
1
4
1
-10
-4
339 77
37 32
13 neg 5
33
18
383
1670
21
16
258
16
14
89
540
25
11
13
23
11
neg 0 i
neg • 0
105 31
451 37
-3
-13
-2 -11
45
_3
-5
32
272
21
-17
-22
Manufacturing
Employment
1963
199
L617
309
42
9
2,318
Density;
manuf act .
employ./
mi.2
0.4
4.0
0.5
0.1
neg
4.9
551 ! 1.0
285
66
2£95
y.76
0.4
0.1
6.1
2.5
86 0.1
507 0.9
191 0.3
6588 12.0
2^282 160.0
13 neg
242 0.3
10^79 26.0
820 1.9
495 0.7
57 ! 416 0.6
103 10A27 25.2
-2 -9
-4
98 0.2
-25 i 334 0.6
-3 | -21
-2 -11
-4
-25
1537 i 439 40
85
49,000d 77
12.60CM
74 i 79,000b
28
31,000d
24
188
54
44
37
-5
114
26
106
95
-17
155
93
17 neg i
845 1.2
16 neg
73pl8
121.0 i
929 1.1
746
1.2
814 1.5
I 66 0.2 :
84
0.2
" y
Figures projected by State
b. "Figures projected by Kansas
c. Figures projected by Topeka
of Kansas Department of Economic Development
City Metropolitan Planning Commission
•Shawnee County Metropolitan Planning Agencies
d. Figures extrapolated by NAPCA from projections by
the Missouri State Highway Department
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34
per square mile), and in St. Joseph, Platte, Leavenworth, Douglas, and
Cass (50-250 residents per square mile), clearly the population is
not spread equally throughout these counties. Most of Shawnee's population
is located in Topeka, Douglas1 in Lawrence, Johnson's in the Kansas City
suburbs, Leavenworth1s in Leavenworth, Buchanan's in St. Joseph, and
Clay's in the Kansas City, Missouri suburbs. Rural areas separate
these cities.
*
Population growth by county during the next decade is presented
5,6,8,9
in Table 3 and Figures 14 and 15. Based on percent rate of growth,
the most rapidly growing counties are expected to be Platte, Johnson
(Missouri), and Clay, followed by Lafayette, Ray, Johnson (Kansas), Cass,
Jackson, Wyandotte, Leavenworth, and Shawnee,.respectively. Considering ab-
solute growth, i.e., additional residents per square mile, Wyandotte and
Jackson are expected to grow most rapidly, followed by Johnson (Kansas),
Clay, Platte, and Shawnee, respectively. According to Figures 14 and 15,
Douglas County will grow by less than 10 additional residents per
Q
square mile (4% rate of growth) over the next decade. The growth projections
made by the State of Kansas Department of Economic Development tend to
be on the conservative side, at least for Douglas County. The 1968 popu-
lation in Douglas County (estimated 53,100 ) approached the projected 1980
Q
population (55,000 ). It is anticipated that the county will be eligible
for designation as a Standard Metropolitan Statistical Area or a part of
•*-*•
one by 1970.
* If more than one set of population growth figures was available for ,
a county, data from a regional planning commission was considered most ,
reliable and was used in this report—e.g., Sfaawnee County and the
seven counties in the Kansas City Metropolitan Planning Commission.
** The Department of the Census and other Federal agencies have established,
a system of Standard Metropolitan Statistical Areas (SMSA) for use in
publishing census data and a variety of other government statistics.
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35
L
Brown Doniphan
Atchison
L ivingston
CarrolJ
Lafayetfe
Uouglas ijjohnson,
a ca —» r*.
Franklin
Anderson
Scale=miles
55
0 5 10 20 30
Figure 14.
40
State Boundary
County Boundary
•" city Boundary
Population Growth From 1968 to
1980 in Percent.
Percent Growth
MOO
30—100
10 30
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36
Brown JDoniphan
j Atchison
I if //Buchanan
Livingston
Carroll
Jefferson W-^
I wx>rth
I Douglas
I
Osage_
, Franklin i Miami
I I i
I Coffey ' Anderson
! Henry
1
Scale=miles
0 5 10 20 30 40
Figure 15. Population Growth, 1968-1980,
Expressed in Absolute Terms
State Boundary
County Boundary
.,. _,,- City Boundary
Additional Residents per Mi,,
[>400
10O-—400
25-»-100
2
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37
The Kansas City Metropolitan Planning Commission has made sub-
county population projections to 1990 for the seven-county metropolitan
area by dividing the area into growth sectors and growth rings. These
projections, by additional residents per sector and ring, are shown
in Figures 16 and 17. Figure 16 indicates that the sector expected to
receive the largest population growth includes the southeastern part
of Johnson County and the western portions of Jackson and Cass Counties
along the state line. The sectors lying south of the Kansas and Missouri
Rivers in Johnson, Wyandotte and Jackson Counties will follow.
Figure 17 indicates that the third outermost ring (C) is expected
to experience the most population growth in the next two decades.
Ring C will approach "saturation" by 1990 but will still have some
room for development, especially in the northern half. Ring D is
expected to grow by 400,000 residents (295% increase, 1963-1990).
INDUSTRY
Two methods are used to indicate location of manufacturing activity.
First, the land use map »10, Figure 18, displays industrial (both light
and heavy) areas in the metropolitan Kansas City area. Major industrial
areas are located on the Kansas, Missouri, and Blue Rivers in
\
Jackson, Clay, and Wyandotte Counties. The outer portions of Jackson,
Clay, and Johnson Counties are spotted with industrial activity. Leaven-
worth, Platte, and Cass have some industry.
A second method of presenting the location of manufacturing can be
based on the density of people employed in manufacturing firms. According
to 1963 data, Wyandotte and Jackson Counties have by far the highest
density of manufacturing employees followed by Clay County. Outside the
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38
Figure 16. Growth by
Sector. 1963-1990
Additional Residents per sector
>500,000
Figure 17. Growth by Ring
1963-1990
Additional Residents per Ring
>500,000
200,000-500,000
100,000-200,000
L 100,000
County Line
Ring Line
\
200,000-500,000
100,000-200,000
<100,000
County Line
Sector Line
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39
'
light or heavy industrial
•f g or eavy nua *
\ ..... area J
Figure 18 . Industrial Land Use
3,10
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40
metropolitan area, Buchanan and Shawnee Counties have manufacturing
employment densities of greater than ten employees per square mile.
Figure 19 shows manufacturing feraployment dansity.
AIR POLLUTION PROGRAMS
In the State of Missouri, primary responsibility for air pollution
control rests with the Missouri Air Conservation Commission. The
Commission has the power to adopt rules and regulations, hold hearings,
enter orders and represent the State in negotiations of interstate
compacts. The Commission is provided for in the Missouri Air Conservation
Law, Revised 1967, where provision is also made for an executive secretary,
judicial review, enforcement by penalties and injunctions, and for
local and regional air pollution control programs. After review of past
performance and present enforcement capabilities, the Commission may issue
a certificate of exemption to a local agency when the agency adopts
regulations at least as stringent as those set by the Commission.
Certificates of exemption have been issued to St. Louis County and
St. Louis City. Applications for such exemptions are now pending for
two cities in the Kansas City area--Kansas City, Missouri, and Independence;
under Missouri law, these cities may continue to enforce their ordinances
while the applications are pending.
In Kansas, control authority is vested with the Kansas Air Quality
Conservation Commission under the State of Kansas Air Quality Control
Act of 1967. The powers and authority of the Commission are similar to
those of its Missouri counterpart. Commission approved local air quality
control agencies have the authority to enforce the regulations set forth
by the Commission and may establish additional rules. The Kansas City,
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41
r _±r. _ _ / / // / /
"VCaldwell
/A
/ /1 Carroll
V-4
/ ' / /1 /
.Douglas /X/j/Jc
I
Osage ; ;
! i Franklin |
I I
1 Coffey I
i
Scale=miles
^_»E
0 5 10 20 30
40
State Boundary
County Boundary
•*" City Boundary
Figure 19. Manufacturing Employment Density (1963)
Manufacturing Employees per square mile
> 100
10^100
1——10
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42
Kansas--Wyandotte County Health Department has promulgated rules and
standards for the city-county area.
Table 4 shows the annual budget levels of the five programs
serving the Kansas City Metropolitan Area.
Table 4. Annual Operating Budget Levels of
Air Pollution Control Agencies in
the Kansas City Area.
Agency
Missouri Air Conservation Commission
Kansas City, Mo. Health Department
City of Independence-Health Dept.
Kansas Air Quality Conservation Comm.
Kansas City--Wyandotte Co. Health Dept.
Approximate
Annual Budget
about $300,000
about $130,000
about $ 20,000
about $ 95,000
about $ 83,000 !
Hearings have been held and a set of comprehensive air quality
standards have been passed for the Missouri side of the Kansas City
Metropolitan area for the control of incinerators, visible emissions
and equivalent opacity, odors, and open burning. The Kansas City
Metropolitan area as defined under the proposed regulations includes
Jackson, Platte, Clay, Cass, and Ray Counties. The inclusion of Ray
County in the Metropolitan Area was requested by the county court of
Ray County.
A step towards interstate cooperation has been made by the
formation of the Greater Kansas City Air Conservation Committee. Thirteen
members make up the perm nent committee. Jurisdictions represented are
as follows: The State of Missouri; the State of Kansas; Cass County;
Clay County; Jackson County; Platte County; Johnson County (Kansas);
Leavenworth City-County; Kansas City, Kansas--Wyandotte County; Kansas
City, Missouri; North Kansas City; the City of Independence; and Sugar
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43
Creek. The Kansas City, Missouri, Health Department, the Kansas City,
Kansas--Wyandotte County Health Department, and the city of Independence
Health Department operate a joint air pollution control laboratory
(located at the Kansas City, Missouri, water works) which serves the
seven county metropolitan area. The function of the Air Conservation
Committee is to coordinate technical activities in the bi-state area
(including financing the laboratory) and to serve as a forum for the
sharing of information regarding common problems.
REGIONAL AGENCIES
Regional planning in the Kansas City area is handled primarily by
the Kansas City Metropolitan Planning Commission. The seven-county
organization includes the counties of Leavenworth, Wyandotte, and Johnson
in Kansas, and Platte, Clay, Jackson, and Cass in Missouri. The
activities of the Commission are numerous and include transportation,
sewer and water, and land use planning, and population analysis. The
Mid-America Council of Governments, which covers the same seven-county
area, is a voluntary association of elected officials representing the
towns, cities, and counties in the metropolitan area. Ten members of
the Council serve on the Planning Commission.
There is a possibility of additional counties being added to the
Metropolitan Planning Commission in the near future. In Missouri, Ray
County is not presently associated with any region, but action on its
inclusion in the Metropolitan Planning Commission is now pending. In
Kansas, the Department of Economic Development has divided the State ;
into regions and sub-regions for planning and development purposes.
Douglas County has been included in the sub-region which contains
Leavenworth, Johnson, and Wyandotte Counties.
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44
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 Kansas City area, consisting of the following
jurisdictions:
In the State of Kansas: In the State of Missouri:
Douglas County Cass County
Johnson County Clay County
Leavenworth County Jackson County
Wyandotte County Platte County
Ray County
As so proposed, the Metropolitan Kansas City Interstate Air
Quality Control Region would consist of the territorial area encompassed
by the outermost boundaries of the proposed counties. The proposed
region is illustrated in Figure 20. Figure 21 locates the region in
relation to the rest of Kansas, Missouri, and the surrounding states.
DISCUSSION OF PROPOSAL
To be successful, an air qualtiy control region should meet
three basic conditions. First, its boundaries should encompass
most pollution sources as well as most people and property affected
by those sources. Second, the boundaries should encompass those
locations where industrial and residential development will create
significant air pollution 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 resources throughout the region. The "Evaluation of Engineering
Factors" (discussion beginning with Page 13) discussed the first of
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45
Scale=miles
sssH5™ss
0 5 10 20 30 40
Figure 20 . Proposed Metropolitan
State Boundary Kansas City Interstate Air
County Boundary
. „- clty
Quality Control Region.
-------
NEBRASKA
Proposed Metropolitan Kansas City
Interstate Air Quality Control
Region —?
KANSAS
IOWA
MISSOURI
Metropolitan
Chicago Interstate
Air Quality Control
Region
ILLINOIS
Proposed Metropolitan
St. Louis Interstate
Air Quality Control
Region
I
V
^
OKLAHOMA
i ....
Figure 21. Relationship of Proposed Kansas City Region
to surrounding areas.
ARKANSAS
~n
/
f-
-------
47
these conditions, and the "Evaluation of Urban Factors" (Page 31),
the second and third.
The first objective--that most air pollution sources and receptors
be within region boundaries--is satisfied by the nine-county Region.
The analysis of engineering factors indicates that sources from five
counties (Clay, Jackson, Platte, Johnson, and Wyandotte) are the main
contributors of air pollutants in the area. Parts of these counties
3
are also affected by above-background levels ( 40 /^g/m ) of suspended
particulates. Concentrations of 0.01 ppm SOy and greater, though
covering a smaller area, affect the same five counties. Carbon
monoxide emissions are more wide-spread since the automobile is the
primary contributor of this pollutant.
The diffusion model does not directly account for topography. Not
shown, therefore, on the contour maps is the probable channelling of
air pollution up and down the river valleys of the Kansas and Missouri.
Depending upon meteorological conditions, the outlying counties of
Douglas, Leavenworth, and Ray, could contribute to or be affected by the
inner core area. The inclusion of these counties is not required at the
present time from an engineering standpoint. However, in order to
provide a buffer zone for the future, they should be included in the
t
Region.
The second objective is directed towards future population and
industrial expansion. The core of the Kansas City metropolitan area
is expanding outward, and in the next two decades substantial population
growth will be experienced in the outer growth rings (page 38). Douglas
County has surpassed the population projections of the State of Kansas
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48
Department of Economic Development and in the next two decades will
probably experience the pressure of Kansas City metropolitan area
expansion.
The third objective relates to governmental administration in the
area. At present, metropolitan planning is handled by the Kansas
City Metropolitan Planning Commission which covers the seven counties
of Leavenworth, Johnson, and Wyandotte in Kansas, and Platte, Clay,
Jackson, and Cass in Missouri. The Mid-America Council of Governments
represents the same jurisdictions. Ray County's inclusion in these
groups is anticipated in the very near future. Douglas County has
not yet decided to join, but it is expected that Douglas will
eventually join the Planning Commission and Council of Governments
since it is aligned with Leavenworth, Johnson, and Wyandotte Counties
as a sub-region designed by the Kansas Department of Economic Development.
As is true of most efforts to draw boundaries around an area to
differentiate it from its surroundings, there is always a likelihood
of boundary conditions existing or developing. In the case of air
quality control regions, such a boundary condition would exist where
sources of pollution on one side of the region boundary affect in
some real way air qualtiy on the other side of the boundary. Relocating
the boundary would only rarely provide relief from this condition.
The solution is to be found in the way in which control efforts are
implemented following the designation of an air quality control region.
Consonant with the basic objective of providing desirable air quality
within the problem area being designated as an air quality control
region, the implementation plan that follows the designation should
-------
49
have provisions for the control of sources located close to but
beyond the region boundaries-. The level of control for such sources
should be a function of, among other factors, the degree to which
emissions from sources cause air quality levels to exceed the standards
chosen for application within the Air Quality Control Region.
In summary, the Region proposed is considered on the whole to
be the most cohesive and yet inclusive area within which an effective
regional effort can be mounted to prevent and control air pollution
\
in the Kansas City area.
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50
REFERENCES
1. "General Atmospheric Diffusion Model for Estimating the Effects
on Air Quality of One or More Sources," Martin, D. and Tikvart,
J., Paper No. 68-148, 6lst Annual Meeting, APCA, St. Paul,
Minnesota, June, 1968.
2. "Rapid Survey Technique for Estimating Community Air Pollution
Emissions," PHS Publication No. 999-AP-29, Environmental Health
Series, USDHEW, NCAPC, Cincinnati, Ohio, October, 1966.
3. "Kansas City, Kansas-Kansas City, Missouri Air Pollution Abate-
ment Activity, Phase II, Pre-Conference Investigations," USDHEW,
Public Health Service, March, 1968.
4. ibid., pages 108 and 109.
5. "Estimates and Projections--1969" (Population, Housing, Employment,
Retail Sales, Income), Kansas City Metropolitan Region, February,
1969, Metropolitan Planning Commission/Kansas City Region.
6. "Projections of Socioeconomic Data to 1967, 1975, and 1990, Summary
Report", Missouri State Highway Department, Division of Highway
Planning, June, 1968.
7. "Population Projections—Kansas City Metropolitan Region", Metro-
politan Planning Commission/Kansas City Region, P-3 April 1968.
8. "The Future Population", Table 14--Population Forecast, Topeka
Metropolitan Area, 1965, 1970, 1975, 1980, Topeka-Shawnee
County Metropolitan Planning Agencies.
9. "Population Projections for the State of Kansas by Counties for
the Years of 1980, 2000, and 2020", State of Kansas Department
of Economic Development.
10. "Metropolitan Kansas City Industrial Map", Chamber of Commerce of
Greater Kansas Ctiy.
11. Commercial Atlas and Marketing Guide, Ninety-ninth edition, 1968,
Rand McNally and Company.
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