WSR 98-08-079
PROPOSED RULES
DEPARTMENT OF ECOLOGY
[Order 97-45--Filed March 31, 1998, 4:19 p.m.]
Original Notice.
Preproposal statement of inquiry was filed as WSR 98-01-182
Title of Rule: Chapter 173-430 WAC, Agricultural burning, amendments are on grass field burning
Purpose: This rule will certify the availability of practical alternatives to open burning of field and turf grasses grown for seed. The result will be a reduction in burning which will minimize adverse health and air quality effects of smoke from grass field burning
Other Identifying Information: In this amendment ecology certifies that alternatives to the burning of grass fields are practical and reasonably available
Statutory Authority for Adoption: RCW 70.94.656
Statute Being Implemented: RCW 70.94.656
Summary: This proposed rule certifies that mechanical residue management is a practical alternate practice to grass field burning and that balers or similar equipment are reasonably available through purchase or contracted operators. By statute, this certification means that burning is prohibited on grass fields where this type of equipment can be operated. The rule allows ecology or local air authority to grant waivers to this prohibition on portions of fields that are too steep or in other circumstances
Reasons Supporting Proposal: When alternatives to burning become available, the statute directs the department to certify the availability of such alternatives. As a result of such certification, the amount of field burning will be reduced and health effects will be minimized
Name of Agency Personnel Responsible for Drafting: Melissa McEachron, Olympia, Washington, (360) 407-6860; Implementation and Enforcement: Grant Pfeifer, Spokane, Washington, (509) 456-3284
Name of Proponent: Department of Ecology, governmental.
Rule is not necessitated by federal law, federal or state court decision.
Explanation of Rule, its Purpose, and Anticipated Effects: By certifying mechanical residue management as an alternate practice to burning grass fields, this rule carries out the provisions of RCW 70.94.656 that prohibit grass field burning after such certification. The prohibition is for those grass fields where a baler or similar equipment can be operated. The rule allows ecology or local air authority to grant waivers to the prohibition on portions of fields that are too steep or other specified circumstances. In addition, ecology has determined that there is a moderate disproportionate impact on small businesses. The rule will allow farmers with less than $300,000 in total gross farm revenues from all farming operations to burn a portion of their acreage for an additional year. All grass farmers will be impacted by these rules.
The purpose of the rule is to certify alternatives to burning in order to reduce smoke from grass field burning. Particulate matter from smoke causes serious health effects including a predisposition to respiratory illness, acute asthma attacks, and premature mortality from chronic lung and heart diseases. Citizens downwind from grass growing areas will benefit from these rules
Proposal Changes the Following Existing Rules: Farmers were previously permitted to burn one-third of their 1996 grass acreage in production. This rule will mean that burning will no longer be permitted on fields where mechanical residue management can be done. A farmer may be allowed to burn the steep portions of fields or fields that meet other specified conditions. This burning cannot exceed one third of the farmer's grass seed in production on May 1, 1996. The rule also limits permit trading that was previously allowed because any waivers issued under this rule will be for farm-specific conditions
A small business economic impact statement has been prepared under chapter 19.85 RCW.
Small Business Economic Impact Statement
Executive Summary: RCW 70.94.656 states the intent of the legislature is to minimize the effects of grass field burning by allowing ecology to reduce the acreage allowed to be burned until such time as alternatives to grass field burning are practical and reasonably available. Ecology has adopted two previous rules that reduce grass seed acreage allowed to be burned. By the summer of 1997, grass field burning was reduced to one-third of the May 1996 acreage in production. The proposed rule will certify that various mechanical residue management practices are practical and reasonably available on fields where baling or similar residue removal methods can be used. This certification means that burning of grass seed fields cannot be permitted on such acreage. Burning is still allowed on steeper fields up to one-third of the May 1996 acreage, provided other conditions are also met.
Ecology has determined that this certification will cause a disproportionate impact on small businesses and is proposing legal and feasible mitigation for that impact in the rule. Ecology has defined a small farm to be one with less than $300,000 of total revenue from all farming operations. For purposes of this analysis, this category is estimated to be 55% to 60% of the grass seed growers in Washington in 1997. The acreage in this category is estimated to be approximately 25,000 acres.
Ecology bases its analysis primarily on a survey of Washington grass seed farmers conducted in early 1998. The survey asked for extensive information on the impacts of the previous acreage reductions. Information was obtained on changes in costs, yields, residue removal methods and acreage devoted to grass. A significant finding was that smaller farms reduced grass acreage by 12% while larger farms increased grass acreage by 19% in response to the earlier amendment limiting grass seed field burning. This suggests a disproportionate impact on small farms.
The analysis examines four possible response scenarios to the prohibition of field burning. It analyzes effects on revenues and costs when grass acreage is changed, when it is not changed, when residue removal costs vary by farm size, and when acreage remained constant by farm and residue removal costs varied by farm size. For all scenarios, the compliance multiplier indicates a slight to moderate disproportionate impact ranging from 14% to 33% for small farm relative to increases in costs for large farms. For all scenarios, the analysis shows that allowing smaller farms to burn a portion of their acreage can reduce these disproportionate costs. The proposed rule amendment incorporates this mitigation by allowing smaller farms to continue to burn up to 25% of their 1997 permitted acreage for one additional year. This provides farmers additional time to plan operations, finance equipment or secure contract operators to remove residue in future years.
A copy of the statement may be obtained by writing to Melissa McEachron, P.O. Box 47600, Olympia, WA 98504, phone (360) 407-6800, or FAX (360) 407-6802
Section 201, chapter 403, Laws of 1995, applies to this rule adoption. This rule includes substantive provisions which subject the violator to a penalty if violated. It also substantively changes the requirements under which a permit to burn grass fields can be issued.
Hearing Location: Spokane Ag Trade Center, 334 West Spokane Falls Boulevard, Spokane, WA 99201, on May 5, 1998, at 2:00 p.m to 10:00 p.m
Assistance for Persons with Disabilities: Contact Karen Wood by April 21, 1998, TDD (509) 458-2055 or (509) 456-5010
Submit Written Comments to: Melissa McEachron, P.O. Box 47600, Olympia, WA 98504, FAX (360) 407-6802, by May 8, 1998
Date of Intended Adoption: May 19, 1998
March 31, 1998
Daniel J. Silver
Deputy Director
AMENDATORY SECTION (Amending Order 94-17, filed 1/17/95)
WAC 173-430-030 Definition of terms. The definitions of terms contained in chapter 173-400 WAC are incorporated into this chapter by reference. Unless a different meaning is clearly required by context, the meanings of the following words and phrases used in this chapter are listed below.
(1) Agricultural burning: Means the burning of vegetative debris from an agricultural operation necessary for disease or pest control, necessary for crop propagation and/or crop rotation, or where identified as a best management practice by the agricultural burning practices and research task force established in RCW 70.94.650 or other authoritative source on agricultural practices.
(2) Agricultural operation: Means a farmer who can substantiate that the operation is commercial agriculture by showing the most recent year's IRS schedule F form or proof that the land is designated in a classification for agricultural use. It also includes burning conducted by irrigation district or drainage district personnel as part of water system management.
(3) Ag task force: Means the agricultural burning practices and research task force.
(4) Best management practice: Means the criteria established by the agricultural burning practices and research task force (Ag task force).
(5) Certify: Means to declare in writing, based on belief after reasonable inquiry, that the statements and information provided are true, accurate, and complete.
(5) (6) Department: Means the department of ecology.
(6) (7) Farmer: Means any person engaged in the business of
growing or producing for sale upon their own lands, or upon the
land in which they have a present right of possession, any
agricultural product. Farmer does not mean persons using such
products as ingredients in a manufacturing process, or persons
growing or producing such products primarily for their own
consumption.
(7) (8) Open burning: Means all forms of burning except
those listed as exempt in WAC 173-425-020.
(8) (9) Permitting authority: Means a local air authority
(and the department where no local air authority exists) or their
delegate. Conservation districts, counties, fire districts, or
fire protection agencies may receive delegation for all or
portions of the agricultural burning permit program as identified
in a delegation agreement. The permitting authority will issue
agricultural burning permits for a given locale.
(9) (10) Silvicultural burning: Means burning on any land
the department of natural resources protects per RCW
70.94.030(13), 70.94.660, 70.94.690, and pursuant to chapter
76.04 RCW.
[Statutory Authority: RCW 70.94.650. 95-03-083 (Order 94-17), § 173-430-030, filed 1/17/95, effective 2/17/95; 93-14-022 (Order 92-58), § 173-430-030, filed 6/28/93, effective 7/29/93. Statutory Authority: RCW 70.94.331. 90-19-062 (Order 90-10), § 173-430-030, filed 9/17/90, effective 10/18/90; Order DE 77-20, § 173-430-030, filed 11/9/77. Formerly WAC 18-16-030.]
Reviser's note: The typographical errors in the above section occurred in the copy filed by the agency and appear in the Register pursuant to the requirements of RCW 34.08.040.
AMENDATORY SECTION (Amending Order 96-05, filed 1/7/97)
WAC 173-430-040 Agricultural burning requirements. (1) Agricultural burning is allowed when it is reasonably necessary to carry out the enterprise. A farmer can show it is reasonably necessary when it meets the criteria of the best management practices and no practical alternative is reasonably available.
(2) All agricultural burning requires a permit.
(a) To qualify for an agricultural burning permit the farmer must be an agricultural operation or government entity with specific agricultural burning needs, such as irrigation districts, drainage districts, and weed control boards.
(b) A farmer must fill out the information requested on a permit application (or the permit) and return it to the permitting authority.
(i) The permitting authority may require the farmer to fill out an application prior to issuing a permit.
(ii) The application must describe the reason for burning and include at least the following information: Name and address of the person or corporation responsible for the burn, the specific location (county; legal description: Range, section, township, block and unit number), the crop type, the type or size of the burn, directions to the burn, specific reason for the burn, the target date for burning, and any additional information required by the permitting authority. Each permitting authority may require additional information on the application.
(iii) All applications must comply with other state or local regulations.
(c) The permitting authority must evaluate the application, if there is one, and approve the permit prior to burning.
(d) Local air agencies (and the department where no local air agency exists) may issue permits for appropriate agricultural burning activities in nonattainment and urban growth areas.
(3) All agricultural burning permits require a fee. After January 1, 1995, the fee is the greater of:
(a) A minimum fee of twenty-five dollars per year per farm based on burning up to ten acres or equivalent which will be used as follows: Twelve dollars and fifty cents of which goes to the agricultural burning research fund and the remainder will be kept by the permitting authority to cover the costs of administering and enforcing this regulation; or
(b) A variable fee based on the acreage or equivalent of agricultural burning which will be used as follows: Up to one dollar per acre for applied research, twenty-five cents per acre for ecology administration and up to one dollar and twenty-five cents per acre for local permit program administration.
(i) Local permitting program administration. One portion of the fee shall cover the permitting authority's costs of administering and enforcing the program. The permitting authority may set the fee as an amount per farm per year, a set amount per fire, or a set rate no greater than one dollar and twenty-five cents per acre burned. The permitting authority must establish this portion of the fee by an appropriate, public process such as a local rule, ordinance, or resolution. In areas of the state where the department is the permitting authority this portion of the fee shall be one dollar and twenty-five cents per acre burned.
(ii) Ecology administration. Another portion of the fee shall be twenty-five cents per acre burned and cover the state-wide administrative, education, and oversight costs of the department. The amount (if any) by which the annual total, of this portion of the fee, exceeds the annual state-wide administrative, education, and oversight costs shall be deposited in the agricultural burning research fund of the air pollution control account.
(iii) Research fund. A final portion, the agricultural burning applied research portion, of the fee shall be no greater than one dollar per acre burned. The amount assessed may be less than one dollar per acre burned as periodically determined by the Ag task force based on applied research needs, regional needs and the research fund budget. The research portion of the fee assessed shall be fifty cents per acre burned starting in calendar year 1995. The Ag task force may also establish discounted assessment rates based on the use of best management practices.
(c) A farmer must pay the fee prior to receiving a permit. Refunds are allowed for portions not burned provided the adjusted fee after subtracting refunds is no less than twenty-five dollars.
(d) The agricultural burning practices and research task force may set acreage equivalents, for nonfield style agricultural burning practices, based on the amount of emissions relative to typical field burning emissions. Any acreage equivalents, established by rule, shall be used in determining fees. For agricultural burning conducted by irrigation or drainage districts, each mile of ditch (including banks) burned is calculated on an equivalent acreage basis.
(4) All agricultural burning permits must be conditioned to minimize air pollution.
(a) A farmer must comply with the conditions on the agricultural burning permit.
(b) For purposes of protecting public health (not eliminating agricultural burning), if an area exceeds or threatens to exceed unhealthy air pollution levels, the permitting authority may limit the number of acres, on a pro rata basis, or as provided by RCW 70.94.656.
(c) Permits must be conditioned to minimize emissions insofar as practical, including denial of permission to burn during periods of adverse meteorological conditions. Additional requirements for burning of field and turf grasses grown for seed. The department of ecology will proceed with the process to certify alternatives to burning as identified in RCW 70.94.656(3). In addition to the certification process, ecology is also limiting the number of acres allowed to be burned as specified in RCW 70.94.656(4). Without regard to any previous burn permit history, in 1996, each farmer shall be limited to burning the greater of:
(i) Two-thirds of the number of acres the farmer burned under a valid permit issued in 1995; or
(ii) Two-thirds of the number of acres in grass seed production on May 1, 1996. "In production" means planted, growing and under the control of the farmer.
(d) Additional requirements for burning of field and turf grasses grown for seed. Beginning in 1997 and until approved alternatives become available, each farmer shall be limited to burning no more than one-third of the number of acres in grass seed production on May 1, 1996. "In production" means planted, growing and under the control of the farmer.
(e) Exemptions to additional requirements for burning of field and turf grasses grown for seed ((d) of this subsection). A farmer may request an exemption for extraordinary circumstances, such as property where a portion(s) of the field is oddly shaped or where the slope is extremely steep. Under this subsection, relief from the acreage/emissions reduction requirements of (d) of this subsection shall be limited to no more than five percent of the acreage in production on May 1, 1996, and is also subject to the following provisions: This provision does not apply to section 045-Alternatives to burning field and or turf grasses grown for seed.
(i) The exemption request must be certified by an agronomic professional;
(ii) The farmer must be able to show full compliance with the emissions reductions in (d) of this subsection for the acreage not exempted; and
(iii) The farmer must be in full compliance with permit requirements for other crops under WAC 173-430-040.
(f) The department of ecology or local air authority may provide for trading of permits using the method described in (f)(i), (ii), (iii), (iv), (v), and (vi) of this subsection. This trading system uses a straight transfer of acres, a transfer requiring mandatory compensation, or a combination of both. If ecology or the local air authority finds that emissions resulting from trading are creating a health impact, as defined by ecology or the local air authority, the trading system, once created, may be dissolved. This provision does not apply to section 045-Alternatives to burning field and or turf grasses grown for seed.
(i) Ecology or the local air authority may develop a system that allows the trading of permits by:
(A) Adding a signed transfer line to the written permit that provides for a signature for the current holder of the permit;
(B) Providing a tracking system that identifies the current holder of the permit, that identifies when the permit was last used to allow burning of acreage, and that allows the name of the holder to be changed if the transfer line is signed by the current holder;
(C) Requiring that the new holder of the permit must turn in the permit with the signed transfer line at least sixty days before the new holder plans to burn; and
(D) Assuring that the permits are used only once in a calendar year.
(ii) By signing the transfer line on the permit the permit holder must indicate that he or she understands that the acres transferred may no longer be burned, that a permit for the acres transferred will not be issued to the signing permit holder in future years, and that the acres being transferred were not already burned during the calendar year during which the transfer takes place.
(iii) Ecology and the local air authorities may add restrictions to the transfer of permits closer to areas with higher population densities.
(iv) Only permits for acreage which has not yet been burned may be transferred or traded. The seller of the permit is responsible for permanently reducing the acreage burned by the amount of acreage transferred from January 1 of the year during which the transaction takes place.
(v) Acreage that is exempted under (e) of this subsection is not eligible for the trading system.
(vi) The authorities are encouraged to work together to use the same system and to allow trading between authority jurisdictions so as to allow the grass seed growers to adjust to the two-thirds overall reduction in acres permitted for burning as easily as possible.
(g) Measurement for emission reduction for grass seed field and turf grass. Ecology will use acres as the basis for determining emission reductions as provided by RCW 70.94.656, until another method(s) is shown to be better and meets with the intent of RCW 70.94.656(4). Ecology will investigate alternate methods, as they become available. If ecology finds that an alternate method is appropriate and meets the criteria, it may certify this method using an administrative order.
(h) Alternate open burning practices for field and turf grass grown for seed. Ecology acknowledges that there may be practices that involve some burning, but which produce emissions quantifiably below those of open field burning. If ecology finds that a practice involves open burning and still substantially reduces emissions below open field burning, ecology may certify the alternate burning practice(s) by administrative order. Any certified practice may be used to satisfy the acreage/emissions reduction requirements of (d) of this subsection provided:
(i) The acreage application of the practice is adjusted to reflect effectiveness in reducing emissions so as to meet or exceed the emissions reduction required by (d) of this subsection; and
(ii) In no case shall the emission reduction requirement for the field and turf grass grown for seed be less than that required in (d) of this subsection.
(5) Other laws. A farmer must obtain any local permits, licenses, or other approvals required by any other laws, regulations, or ordinances. The farmer must also honor other agreements entered into with any federal, state, or local agency.
[Statutory Authority: RCW 70.94.656(4). 97-03-021 (Order 96-05), § 173-430-040, filed 1/7/97, effective 2/7/97. Statutory Authority: RCW 70.94.650. 95-03-083 (Order 94-17), § 173-430-040, filed 1/17/95, effective 2/17/95; 93-14-022 (Order 92-58), § 173-430-040, filed 6/28/93, effective 7/29/93. Statutory Authority: RCW 70.94.331. 90-19-062 (Order 90-10), § 173-430-040, filed 9/17/90, effective 10/18/90; Order DE 77-20, § 173-430-040, filed 11/9/77. Formerly WAC 18-16-040.]
NEW SECTION
WAC 173-430-045 Alternatives to burning field and/or turf grasses grown for seed (1) When is open burning of field and turf grasses grown for seed prohibited?
The Washington Clean Air Act prohibits open burning of field and turf grasses grown for seed whenever ecology has concluded, through a process spelled out in the Act, that any procedure, program, technique, or device constitutes a practical alternate agricultural practice to open burning, and that alternate is reasonably available.
(2) Has ecology certified practical alternatives to open burning of field or turf grasses grown for seed?
Yes. Ecology concludes that mechanical residue management constitutes a practical alternate agricultural practice to the open burning of field and/or turf grasses grown for seed. Mechanical residue management means removing, including arranging for removal of, the residue using non-thermal, mechanical techniques including, but not limited to: tilling, swathing, chopping, baling, flailing, mowing, raking, and other substantially similar non-thermal, mechanical techniques. Ecology further concludes that mechanical residue management is practical throughout all phases of seed production including: 1) when the field is planted (establishment); 2) when the field is producing seed (harvest years); 3) when the field is prepared for replanting (tear-out).
(3) Are the alternatives to open burning that have been certified by ecology reasonably available?
Ecology concludes that mechanical residue management is reasonably available throughout the state wherever baling can be used. Baling is the process of gathering the residue and moving it off the field. Typically, a machine known as a "baler" is used to gather and bundle residue that is already cut.
Based on this conclusion, the open burning of field and/or turf grasses grown for seed is prohibited. Open burning of field and/or turf grasses grown for seed may be allowed under circumstances as described in Section (4) below. This rule does not require the use of any particular practice or technique. A farmer may use any alternate practice that does not involve field burning.
(4) Under what circumstances may open burning of field or turf grasses grown for seed be allowed?
a. Where a farmer establishes that mechanical residue management is not reasonably available on specific portions of a field under specific production conditions due to slope. In a request for a waiver, a farmer must certify in writing to ecology or local air authority the following:
(i) Baling is not reasonably available due to slope. A farmer must explain why baling is not reasonably available, referring to specific facts supporting this belief. A farmer may use statements from three separate businesses providing baling services as part of their commercial operation to support the belief that baling is not reasonably available due to slope. In the statements, the businesses must certify that they are independent from the farmer and have no financial interest in the farmer's operation;
(ii) Current harvest practices have not diminished the ability to use mechanical residue management;
(iii) Field production is after the first harvest season and prior to the fourth harvest season;
(iv) The ground or portions of the field have not been burned three years in a row in the three years preceding the request for a waiver;
(v) The field will remain, without replanting, in grass production at least through the next harvest season following burning;
(vi) All residue from any neighboring fields or portions of fields will be removed prior to burning and that reasonable precautions will be taken to prevent fire from spreading to areas where burning is not allowed;
(vii) Adjustments in field rotations and locations cannot be made at any time during the rotational cycle and could not have been made when planted to allow the use of mechanical residue management techniques.
b. Where a farmer establishes that extreme field conditions exist. Ecology or a local air authority, at their discretion, may grant a request for a waiver for extreme field conditions. The farmer must certify in writing the following:
(i) Why mechanical residue management is not reasonably available, referring to specific facts supporting this belief;
(ii) He/she did not cause or create the field condition to purposefully avoid using mechanical residue management techniques;
(iii) Field production is after the first harvest season and prior to the fourth harvest season;
(iv) The ground or portions of the field have not been burned three years in a row in the three years preceding the request for a waiver;
(v) The field will remain, without replanting, in grass production at least through the next harvest season following burning;
(vi) All residue from any neighboring fields or portions of fields will be removed prior to burning and that reasonable precautions will be taken to prevent fire from spreading to areas where burning is not allowed;
(vii) Adjustments in field rotations and locations cannot be made at any time during the rotational cycle, and could not have been made when planted to allow the use of mechanical residue management techniques.
c. Where a farmer demonstrates to ecology or local air authority that his/her small farm is eligible for mitigation.
For 1998 only, ecology or a local air authority may allow burning on a small farm. A small farm owner has a gross 1997 revenue from all farm operations of less than $300,000. A small farm owner may burn current acreage up to 25% of 1997 acreage burned under a valid permit. Fields taken out of production in 1998 are not eligible.
d. Where a request for a waiver is approved under a, b, and c., the following additional limitations also apply:
Total acreage granted must not exceed 1/3 of a farmer's acreage in production on May 1, 1996. Permits issued pursuant to (a), (b), or (c) are not eligible for the permit trading program identified in section 040 of this regulation.
(5) What is the process for a farmer to request a waiver for circumstances described in Section (4) above?
a. A farmer submits a request for a waiver.
Sixty days prior to the planned burn date, a farmer must submit in writing a request to ecology or a local air authority. In the request, the farmer must identify the circumstances and meet the specific requirements of (4)(a), (b), and/or (c).
b. Ecology or local air authority evaluates the request for a waiver.
Upon receiving a request for a waiver, ecology or local air authority will determine if the necessary documents and information provided is complete enough to evaluate the request. If incomplete, Ecology or local air authority will advise the farmer and suspend further evaluation until the request for a waiver is complete. Once a request for a waiver is deemed complete, ecology or local air authority will evaluate the request and decide whether or not a burning permit is appropriate. As part of the evaluation, ecology or local air will conduct an on-site inspection.
If ecology or local air authority denies a request for a waiver, the reasons will be provided to the farmer in writing. If approved, ecology or the local air authority will notify the farmer by convenient means. Ecology will also notify the appropriate delegated authority.
c. The farmer applies for an agricultural burning permit.
If ecology or local air authority approves a request for a waiver, the farmer must complete a permit application and pay the fee as described in Section 040 of this regulation. A delegated authority must receive written authorization from ecology that a waiver has been approved prior to processing a permit application.
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