[Federal Register Volume 65, Number 181 (Monday, September 18, 2000)]
[Notices]
[Pages 56308-56310]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 00-23948]


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ENVIRONMENTAL PROTECTION AGENCY

[FRL-6871-5]


Notice of Availability of Recommendations From the Task Force on 
Agricultural Air Quality Regarding Agricultural Burning and Voluntary 
Measures; Solicitation of Comments

AGENCY: Environmental Protection Agency (EPA).

ACTION: Notice of availability.

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SUMMARY: The purpose of this notice is to provide the public with an 
opportunity to comment on the Agricultural Air Quality Task Force 
(AAQTF) recommendations regarding an air quality policy on agricultural 
burning and on a voluntary (incentive based) control measures policy to 
address RACM/BACM requirements for particulate matter (PM) 
nonattainment areas. Section 391 of the 1996 Federal Agriculture 
Improvement and Reform Act (FAIR) directs the Chief of the Natural 
Resource Conservation Service (NRCS) of the United States Department of 
Agriculture (USDA) to establish a task force to address agricultural 
air quality issues. The AAQTF includes representation from agricultural 
producers, air quality researchers, agricultural industry 
representatives, medical researchers and State air quality and USDA 
staff. On November 10, 1999, the AAQTF forwarded a series of 
recommendations to the USDA in response to implementing provisions of 
the Clean Air Act and the concerns of agricultural producers to retain 
the valid use of fire as a management tool in support of agricultural 
production. In February 2000, Secretary Glickman forwarded these 
recommendations to EPA Administrator Browner as written for 
consideration in the development of future policies impacting 
agricultural burning. The recommendations provide guidance on reducing 
air pollution impacts caused by burning in support of agricultural 
production. It identifies a two-tier approach to the regulation of 
agricultural burning by Agricultural Burning Managers. Along with these 
recommendations the AAQTF also submitted recommendations to the 
Administrator related to a voluntary (incentive based) control measures 
policy to address RACM/BACM requirements for agricultural operations in 
PM nonattainment areas.
    The EPA is seeking public comment on both sets of AAQTF 
recommendations as it prepares to begin developing policies to address 
the air quality impacts of agricultural burning

[[Page 56309]]

and the use of USDA's incentive based programs/practices in meeting 
RACM/BACM requirements. Since the voluntary measures recommendations 
are relatively brief they have been included in this notice. The 
agricultural burning recommendations however are too lengthy to include 
here. To obtain copies of the agricultural burning recommendations via 
the Internet, use the following Internet address: http://www.nhq.nrcs.usda.gov/faca/aaqtf.html. This document can also be found 
at http://www.nhq.nrcs.usda.gov/faca/. To obtain hard copies call Robin 
Dunkins at 919-541-5335, or Elvis Graves at 919-541-5436.

DATES: Written comments, identified by Docket No. A-2000-22, must be 
received by EPA on or before November 17, 2000.

ADDRESSES: Comments may be submitted by mail, electronically, or in 
person. Please follow the detailed instructions for each method as 
provided in the SUPPLEMENTARY INFORMATION section of this document.

FOR FURTHER INFORMATION CONTACT: Gary Blais or Robin Dunkins, 
Integrated Policy and Strategies Group, Office of Air Quality Planning 
and Standards, Environmental Protection Agency, Research Triangle Park, 
NC 27711; telephone numbers: 919-541-3223 or 919-541-5335; e-mail 
addresses: [email protected] or [email protected].

SUPPLEMENTARY INFORMATION:

I. How can I get additional information or copies of this document 
or other related documents?

    1. Electronically. You may obtain electronic copies of this 
document and other related documents from the EPA internet home page at 
http://www.epa.gov/. To access this document, on the home page select 
``Laws and Regulations'' and then look up the entry for this document 
under the ``Federal Register--Environmental Documents.'' You can also 
go directly to the Federal Register listings at http://www.epa.gov/fedrgstr/.
    2. In Person. The Agency has established an official record for 
this action under docket control number A-2000-22. The official record 
consists of the documents specifically referenced in this action, any 
public comments received during an applicable comment period, and other 
information related to this action, including any information claimed 
as Confidential Business Information (CBI). This official record 
includes the documents that are physically located in the docket, as 
well as the documents that are referenced in those documents. The 
public version of the official record does not include any information 
claimed as CBI. The public version of the official record, which 
includes printed, paper versions of any electronic comments submitted 
during an applicable comment period, is available for inspection in 
EPA's Air and Radiation Docket and Information Center; 401 M Street SW; 
Room M-1500 (Mail Code 6102); Washington, DC 20460. The docket is 
available for public inspection and copying between 8:00 a.m. and 5:30 
p.m., Monday through Friday, excluding legal holidays. A reasonable fee 
may be charged for copying.

II. How and to Whom Do I Submit Comments?

    You may submit comments through the mail, in person, or 
electronically. To ensure proper receipt by EPA, it is imperative that 
you identify docket control number A-2000-22 in the subject line on the 
first page of your response.
    1. By U.S. Postal Service. Submit comments to: EPA Air and 
Radiation Docket and Information Center (Mail Code 6102), Attention: 
Docket No. A-2000-22, U.S. Environmental Protection Agency, 1200 
Pennsylvania Ave., NW, Washington, DC 20460, telephone (202) 260-7548.
    2. In Person or by Courier. Deliver comments to: EPA Air and 
Radiation Docket and Information Center; 401 M Street SW; Room M-1500 
(Mail Code 6102); Washington, DC 20460; Attention: Docket No. A-2000-
22.
    3. Electronically. Submit electronic comments by e-mail to: [email protected]. Do not submit any information electronically 
that you consider to be CBI. Electronic comments must be submitted as 
an ASCII file, avoiding the use of special characters and any form of 
encryption. Comments and data will also be accepted on standard 
computer disks in WordPerfect 6.1/8.0 or ASCII file format. All 
comments in electronic form must be identified by the docket control 
number A-2000-22. Electronic comments may also be filed online at many 
Federal Depository Libraries.

III. How Should I Handle CBI Information That I Want To Submit to 
the Agency?

    Do not submit any information electronically that you consider to 
be CBI. You may claim information that you submit to EPA in response to 
this document as CBI by marking any part or all of that information as 
CBI. Information so marked will not be disclosed except in accordance 
with procedures set forth in 40 CFR part 2. In addition to one complete 
version of the comment that includes any information claimed as CBI, a 
copy of the comment that does not contain the information claimed as 
CBI must be submitted for inclusion in the public version of the 
official record. Information not marked confidential will be included 
in the public version of the official record without prior notice. If 
you have any questions about CBI or the procedures for claiming CBI, 
please consult the person listed under FOR FURTHER INFORMATION CONTACT.

IV. What Should I Consider as I Prepare My Comments for EPA?

    You may find the following suggestions helpful for preparing your 
comments:
    1. Explain your views as clearly as possible.
    2. Describe any assumptions that you used.
    3. Provide copies of any technical information and/or data you used 
that support your views.
    4. If you estimate potential burden or costs, explain how you 
arrived at the estimate that you provide.
    5. Provide specific examples to illustrate your concerns.
    6. Offer alternative ways to improve this notice.
    7. Make sure to submit your comments by the deadline in this 
document.
    8. To ensure proper receipt by EPA, be sure to identify the docket 
control number assigned to this action in the subject line on the first 
page of your response. You may also provide the name, date, and Federal 
Register citation.

V. Voluntary Compliance Program Recommendations--Introduction

    Agricultural field operations are perceived to be significant 
sources of PM-10. In areas that are classified as nonattainment, states 
are required to bring the areas into attainment in a time frame 
specified by the Clean Air Act (CAA). If a time line is not met, the 
state is subject to penalties such as withholding of federal highway 
funds, offsets, and Federal Implementation Plans (FIPs).
    In ``moderate'' and ``serious'' nonattainment areas, all area 
source agricultural operations that are perceived to contribute to the 
ambient concentration of PM-10 will be required to implement 
``Reasonably Available Control Measures (RACM)'' and ``Best Available 
Control Measures (BACM),'' respectively. No current guidance exists on 
RACM and BACM for agricultural operations. The difficulties with

[[Page 56310]]

specifying control measures for area sources of PM-10 are the lack of 
good scientific data on the quantity of the PM-10 reductions associated 
with specific ``RACM/BACM.'' In order to appropriately develop guidance 
for agricultural operations, the following research is needed:
     Define appropriate and effective PM-10 control measures 
(potential RACM/BACMs) for agricultural operations that are 
economically and technologically feasible;
     Quantify PM-10 reductions resulting from the utilization 
of each proposed RACM/BACM; and
     Develop accurate emissions inventories for agricultural 
operations.
    In the interim, States must include in their State Implementation 
Plans (SIPs) actions that will bring nonattainment areas into 
attainment within the time frame specified by the CAA. The Agricultural 
Air Quality Task Force (AAQTF) recommends that the available control 
measures (potential candidates for RACM/BACM) be based on the 
Conservation Management Practices (CMP) compiled by USDA.

VI. Voluntary Compliance Program Recommendations

    The AAQTF considers that voluntary compliance programs are the 
appropriate strategy for agriculture. The AAQTF is proposing that 
voluntary compliance programs be used by air pollution regulatory 
agencies for reductions of PM-10 from agricultural operations in areas 
classified as nonattainment. The goal of these voluntary, incentive-
based programs is to provide significant reductions of PM-10 emissions 
from agricultural operations while sustaining long-term agricultural 
production. In order for EPA to utilize this policy, the USDA 
incentive-based programs must include ``accountability'' and ``backstop 
provisions.'' ``Accountability'' would encompass verification of 
participation in the program by NRCS or ``appropriate agency.'' 
(``Farmers will self certify and NRCS will provide verification of 
percent application every third year or as appropriate.) Accountability 
would also include adequate recordkeeping of plans and participation by 
USDA. ``Backstop'' would be a failure to achieve participation credited 
in the SIP which would result in a ``SIP Call'' and could result in a 
regulatory approach by the state which could regulate individual 
agricultural operations.
    Although the motivation for this program is to address PM-10 
regulatory procedures, it is anticipated that this voluntary compliance 
program could also be used for other regulated pollutants attributed to 
agricultural operations.
    As part of this program, the AAQTF proposes the following:
     A guidance document for agriculture production be 
developed that would include proposed RACM/BACMs and estimated 
reductions of PM-10 associated with implementation of each abatement 
strategy. It is anticipated that RACM/BACM will need to be determined 
on a site specific basis. (A RACM/BACM may be appropriate for one 
location and not appropriate for another.) Provisions will be made to 
facilitate the incorporation of current research findings into this 
guidance document.
     Local elected officials from the soil and water 
conservation districts as agreed to in the USDA/EPA Memorandum of 
Understanding (MOU) may administer the voluntary compliance program 
with technical assistance, education and training provided by the 
Natural Resources Conservation Service (NRCS), Cooperative State 
Research, Education, and Extension Service (CSREES), land grant 
universities, and the Agricultural Research Service (ARS).
     Appropriate resources should be provided to the local soil 
and water conservation districts and NRCS personnel.
     SIP credits should be allowed based on the rate of 
participation (percentage of land mass and/or percentage of cooperators 
participating) and should be based on certification by officials of the 
conservation district on an annual basis.
     There should be no additional record keeping and reporting 
requirements on the cooperators beyond that required by the USDA 
programs.
     The success of this policy will depend upon the states 
ability to comply with the SIP.
     If agricultural operations are utilizing economically and 
technologically feasible control measures, the intent of this policy is 
not to place demands that will result in adverse impacts on those 
cooperators.

    Dated: September 6, 2000.
John S. Seitz,
Director, Office of Air Quality Planning and Standards.
[FR Doc. 00-23948 Filed 9-15-00; 8:45 am]
BILLING CODE 6560-50-P